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CHILD  WELFARE  WORK 
IN  PENNSYLVANIA 

A  CO-OPERATIVE   STUDY  OF  CHILD-HELPING 
AGENCIES  AND  INSTITUTIONS 


DIRECTED   BY 

WILLIAM  H.  SLINGERLAND,  PH.D. 

SPECIAL  AGENT  DEPARTAVENT  OF  CHILD-HELPING 
RUSSELL  SAGE  FOUNDATION 


In  Co-operation  With 

THE  OFFICERS  AND  A  COMMITTEE  OF  THE 
PENNSYLVANIA  STATE  CONFERENCE  OF  CHARITIES 


NEW     YORK 

DEPARTMENT   OF   CHILD-HELPING 

RUSSELL   SAGE    FOUNDATION 

MCMXV 


*^:ii 


Copyright,  1915,  by 
The  Russell  Sage  Foundation 


THE  RUMFORD  PRESS 
CONCORD,  N.  H. 


PREFACE 

THIS  volume  contains  the  report  of  a  co-operative  study, 
with  various  inferences  drawn  from  the  facts  presented  in 
the  statistics,  and  a  number  of  suggestions  for  the  improve- 
ment of  existing  conditions.  The  scope  of  the  study  included  all 
organized  welfare  work  in  the  state  of  Pennsylvania  in  behalf  of 
dependent,  delinquent,  and  defective  children. 

The  Introduction  by  Dr.  Hastings  H.  Hart  is  a  resum6  of 
child-helping  methods  and  conditions  with  some  remarkable  sta- 
tistics comparing  Pennsylvania  with  several  other  states.  One 
chapter  of  the  book  is  given  to  general  comments  and  recommen- 
dations. Three  are  devoted  to  matters  of  state-wide  significance — 
state  supervision  of  children's  institutions,  care  and  segregation  of 
the  feeble-minded,  and  some  revised  and  recent  statutes.  The 
final  chapter  discusses  the  relations  of  social  and  religious  forces 
in  betterment  work. 

Attention  is  called  to  recommendations  in  regard  to  the 
following: 

1.  Program  in  Reference  to  Mental  Defectives  (pages  15  and  274) 

2.  Girard  College  (pages  16  and  250) 

3.  Subsidizing  Private  Institutions  (page  21) 

4.  State  Supervision  of  Children's  Institutions  (pages  27  and  256) 

5.  A  State  Program  (pages  31  and  295) 

6.  A  Children's  Code  (pages  32  and  252) 

7.  Agency  and  Institutional  Records  (pages  239  and  301) 

8.  Systematic  Study  and  Investigation  (page  240) 

9.  Placing-out  Work  (page  247) 

10.  Misguided  Benevolence  (page  249) 

1 1.  A  Children's  Department  (page  263) 

12.  Mothers'  Assistance  Matters  (page  276) 

The  book  is  intended  also  to  be  a  manual  of  reference.  It 
contains  a  very  complete  list  of  Pennsylvania's  child-caring  in- 
stitutions, and  many  important  details  in  regard  to  each  of  them. 
To  facilitate  its  use  as  a  ready  reference  volume,  two  carefully  pre- 
pared indexes  are  placed  at  its  close.  One  is  an  alphabetical  list 
of  the  343  agencies  and  institutions  studied,  with  locations;  the 
other,  a  general  index  covering  the  text  and  tables. 

iii 


PREFACE 

On  account  of  limitations  of  space,  especially  in  the  tables, 
short  titles  have  been  used  for  some  of  the  institutions  instead  of 
the  longer  legal  titles.  The  name  used  is  generally  that  by  which 
the  institution  is  popularly  known  in  the  community  where  it  is 
located.  In  some  instances  the  popular  title  is  the  one  the  officials 
desire  to  have  universally  accepted. 

Limitations  of  space  also  compelled  the  condensation  of 
textural  descriptions  of  many  of  the  institutions.  Readers  on  this 
account  should  give  closer  attention  to  the  statistical  tables, 
which  are  arranged  to  give  the  maximum  of  information  in  the 
minimum  of  space,  and  in  systematic  form. 

The  statistics  and  descriptions,  except  a  few  comparative 
tables  in  the  Introduction,  are  confined  necessarily  to  Pennsyl- 
vania organizations  and  institutions.  The  definitions,  suggestions, 
recommendations,  and  discussions,  wherever  they  occur,  and 
especially  several  entire  chapters,  touch  a  wider  range  of  subjects 
which  are  of  perennial  interest. 

The  writer  gratefully  acknowledges  his  indebtedness  to 
many  welfare  workers  for  counsel  and  material.  Especial  men- 
tion should  be  made  of  the  committee  of  the  Pennsylvania  State 
Conference  of  Charities  and  Correction,  included  in  that  group  of 
social  workers,  mainly  Philadelphians,  known  through  the  study 
as  "our  Pennsylvania  associates."  To  name  these  associates 
personally  might  seem  invidious;  however,  the  officers  of  two  or- 
ganizations, the  Children's  Aid  Society  of  Pennsylvania  and  the 
Seybert  Institution  for  Poor  Boys  and  Girls,  deserve  thanks  and 
commendation  for  their  generous  contributions  to  the  expense  of 
the  field  work. 

It  has  been  impossible  to  entirely  separate  economic,  social, 
and  religious  matters  in  treating  themes  where  all  are  so  closely 
involved.  Yet  the  discussion  of  most  of  the  more  general  and 
philosophic  relations  of  social  work  has  been  confined  to  a  single 
chapter — that  on  Transition  and  Progress.  The  book  as  a  whole 
is  intended  to  be  a  sympathetic  diagnosis  of  the  situation,  a  some- 
what detailed  analysis  of  present  needs,  and  a  manual  of  friendly 
suggestions  as  to  future  action. 

William  H.  Slingerland. 


TABLE   OF   CONTENTS 


Preface      

List  of  Illustrations 

Special  Tables  in  Text 

Index  to  Statistical  Tables 

Glossary  of  Abbreviations xvii 


IV.  Almshouses  and  Poorhouses   .... 

V.  Detention  Homes  of  Juvenile  Courts    . 

VI.  State  and  County  Homes  for  Dependents   . 

VII.  Homes  and  Training  Schools  for  Delinquents 

VI 11.  Homes  and  Training  Schools  for  Defectives 

IX.  Institutions  for  Crippled  Children 

X.  Summary  for  Miscellaneous  Institutions  for  Children 


PAGE 

ill 
vii 
xiii 
xiv 


Part  One 
INTRODUCTORY 

Introduction.     By    Hastings    H.    Hart,    LL.D.,    Director 

Department  of  Child-Helping 3 

I.  Inception  and  Scope  of  the  Study 35 

II.   Kinds  and  Numbers  of  Institutions 44 

III.  The  Statistical  Tables 48 


Part  Two 
MISCELLANEOUS  INSTITUTIONS  FOR  CHILDREN 


55 
66 

71 
80 

95 
105 
114 


Part  Three 

THE  CHILD-CARING  AGENCIES 

XL  General  Child-caring  Agencies 123 

XII.  County  Children's  Aid  Societies  of  Eastern  Pennsylvania  132 

XIII.  County  Children's  Aid  Societies  of  Western  Pennsylvania  138 

XIV.  Humane  Societies  for  Children 145 

XV.  Special  Child-caring  Agencies 151 

XVI.  Summary  for  Child-caring  Agencies 157 

V 


table  of  contents 

Part  Four 
PRIVATE  INSTITUTIONS  FOR  DEPENDENTS 

XVII.  Private  Institutions  for  Dependents 165 

XVIII.  Nonsectarian  Orphanages  and  Homes — Cottage  Type      .  169 

XIX.  General  Church  Orphanages  and  Homes— Cottage  Type  178 

XX.  Nonsectarian  Orphanages  and  Homes — Congregate  Type  186 

XXI.  Catholic  Orphanages  and  Homes — Congregate  Type        .  198 

XXII.  General    Church   Orphanages   and    Homes — Congregate 

Type 206 

XXIII.  Institutions  for  Combined  Care  of  Adults  and  Children   .  214 

XXIV.  Summary  for  Private  Institutions  for  Dependents    .        .  222 

XXV.  Summary  General  for  Agencies  and  Institutions        .       .  230 

Part  Five 
GENERAL  AND  LEGISLATIVE  MATTERS 

XXVI.  General  Suggestions  and  Recommendations        .       .        .  239 

XXVII.  State  Supervision  of  Children's  Institutions       .        .        .  256 

XXVIII.  Care  and  Segregation  of  the  Feeble-minded        .        .        .  266 

XXIX.  Law  of  19 1 3  for  Mothers' Assistance 276 

XXX.  Some  Revised  and  Recent  Statutes 283 

XXXI.  Transition  and  Progress 293 

Appendix 299 

Alphabetical  List  OF  Agencies  AND  Institutions  .       .       .       .  313 

Index 327 


LIST  OF   ILLUSTRATIONS 
(Arranged  alphabetically  according  to  location  of  institution) 

Allentown 

Good  Shepherd  Home  page 

The  Home 216 

The  Family 216 

Friendly  Visitors 217 

A  Marasmic  Child 217 

Chambersburg 

Franklin  County  Children's  Aid  Society 

Children's  Home 139 

Custer  City 

Beacon  Light  Mission  or  McKean  County  Children's  Home  279 

Darling 

Glen  Mills  Schools — Girls'  Department  (Sleighton  Farm) 

The  Buildings 82 

On  the  Porch 82 

in  the  Kitchen 82 

In  the  Field 83 

Harvest  Products 83 

Feeding  the  Fowls 83 

Downington 

Downington  Industrial  and  Agricultural  School 

Pennsylvania  Hall — Boys'  Dormitory  .        .        .        .189 

Carpenter  Shop 189 

Germantown 

Jewish  Foster  Home  and  Orphan  Asylum 

The  Home  on  Church  Lane 207 

Boys'  Baseball  Team 207 

Girls'  Baseball  Team 207 

Greenville 

St.  Paul's  Orphans'  Home 

Porch  of  Main  Building,  and  Family 244 

Dairy  Herd  at  St.  Paul's 244 

Hershey 

Hershey  Industrial  School 

View  of  the  School 170 

Manual  Training  Shop 170 

vii 


LIST   OF    ILLUSTRATIONS 

I  dlewood 

St.  Paul's  Orphan  Asylum  page 

Main  Building 198 

The  Gardeners 198 

Hospital  Building  Sleeping  Porch 199 

A  Few  of  the  Little  Folks 199 

Indiana 

Children's  Aid  Society  of  Western  Pennsylvania 

Girls'  Industrial  School 138 

Lancaster 

Thaddeus  Stevens  Industrial  School 

Main  Building 171 

Cottages  for  Housing  Students 171 

Mars 

St.  John's  Lutheran  Home 

View  of  Buildings 227 

Meadville 

Meadville  Children's  Aid  Society  Home 278 

Odd  Fellows'  Home  of  Western  Pennsylvania      ....     260 
Millersville 

Mennonnite  Children's  Home 

Main  Building 226 

Morganza 

Pennsylvania  Training  School 

Industrial  Training  for  Boys 88 

Under  the  Trees 88 

Oakdale 

Boys'  Industrial  Home  of  Western  Pennsylvania 

The  Home  and  Its  Environs 188 

The  Family  Group 188 

Philadelphia 

Baptist  Orphanage 

A  Typical  Cottage  Orphanage         .        .  Frontispiece 

A  Typical  Cottage 178 

A  Family  of  Boys 178 

A  Family  of  Girls 178 

Bethesda  Children's  Christian  Home 

Main  Building 260 

On  the  Playground 260 

Charities  Building 

Headquarters  of  Our  Pennsylvania  Associates      .       .       .125 
viii 


LIST   OF    ILLUSTRATIONS 

Children's  Aid  Society  of  Pennsylvania  page 

A  Sample  Foster  Home 124 

A  Happy  Adopted  Boy 124 

Life  Saved  by  Boarding  Out 124 

Friends'  Home  for  Children 

Main  Building 227 

Gonzaga  Memorial  Home 46 

Home  of  the  Merciful  Saviour  for  Crippled  Children 

Building  and  Playground 106 

House  of  Detention 

Building  at  Arch  and  Twenty-second  Streets        ...  66 

Roof  G\mnasium  and  Physical  Training  Class     ...  66 

The  School  Room 67 

The  Kitchen 67 

House  of  the  Holy  Child 

A  Negro  Orphanage 226 

House  of  St.  Michael  and  All  Angels 

The  Nursery 106 

Methodist  Episcopal  Orphanage 

Main  Building  and  One  Cottage 179 

General  Dining  Room 179 

Philadelphia  Home  for  Infants 

The  Tots'  Dormitory 261 

The  Tots  at  Play 261 

Presbyterian  Orphanage  of  Pennsylvania 

Two  of  the  Cottages 245 

An  Orphan  Boy 243 

An  Orphan  Girl 245 

St.  Joseph's  House  for  Homeless  Boys 

The  Plant  on  Pine  Street 252 

A  Congregate  Dining  Room 252 

St.  Vincent's  Orphan  Asylum  (Tacony) 

The  Orphanage 253 

A  Group  of  Girls 253 

Twenty  of  the  Boys 253 

Salvation  Army  Rescue  Home 

Children's  Home  and  Hospital 24 

The  Bed  Line 24 

At  Play  in  the  Nursery 24 

Shelter  for  Colored  Orphans 

Infirmary  and  Main  Building 23 

ix 


LIST   OF    ILLUSTRATIONS 

PAGE 

On  the  Playground 25 

Kindergarten  Girls 25 

Widener  Memorial  School 

Entrance 107 

Front  View 107 

Rear  View 107 

Pittsburgh 

A  Great  Congregate  Asylum 

Childhood  En  Masse 10 

The  March  to  Supper ii 

A  Typical  Institution  Class  Room 11 

Holy  Family  Polish  Orphan  Asylum 

The  Lawn  Dressers  47 

Twenty  Little  Tots  47 

Home  for  Colored  Children 189 

Polk 

Western  Pennsylvania  Institution  for  Feeble-Minded 

General  View  of  Institution 96 

Boys'  Cottage  and  Cottage  Family 9^ 

Manual  Work  School  Room 96 

Redington 

William  T.  Carter  Junior  Republic 

The  Boys'  Cottage 89 

Carter  Republic  Citizens 89 

Rochester 

Passavant  Memorial  Home  for  Epileptics 

View  of  the  Home 97 

The  Field  Workers 97 

Women  and  Girls  at  the  Home 97 

Rosemont 

Home  of  the  Good  Shepherd 227 

Scotland 

Soldiers'  Orphans'  Industrial  School 

Main  Buildings  72 

Farm  Cottage  and  Driveway 72 

View  of  the  Lake 72 

Scranton 

St.  Joseph's  Foundling  Home 

A  Typical  Congregate  Building 46 

Babies'  Dormitory 46 

X 


LIST   OF    ILLUSTRATIONS 

Topton 

Lutheran  Orphans'  Home  p^ce 

Chief  Building 206 

Play  and  Profit 206 

Girls'  Lavatory  206 

Warren 

Warren  County  Children's  Aid  Society 

Summer  Camp j,g 

Williamsburg 

Blair  County  Industrial  Training  Home        •        •        .        •       73 

Woodville 

Allegheny  County  Home  (Almshouse) 

The  Building  and  Its  Playground 56 

Ward  for  Men— and  Little  Boys 56 

Playmates  at  Woodville  5y 

Caretakers  and  Children cy 


SPECIAL  TABLES   IN  TEXT 


PAGE 


A.  Institutions  for  dependent,  delinquent,  and  defective  children        4 

B.  Relative  size  of  institutions  for  dependent  children  ...         5 

C.  Comparison  of  work  and  resources  of  institutions  for  dependent, 

delinquent,  and  defective  children  in  eastern  and  western 
sections  of  Pennsylvania 7 

D.  Comparison  of  institutions  for  dependent,  delinquent,  and  de- 

fective children  in  four  states,  1912 14 

E.  Work  of  child-caring  agencies  in  Pennsylvania    .        .        .        .        19 

F.  Subsidies  to  institutions  for  dependent  children  in  four  states, 

1912 22 

G.  Public  and  private  agencies  and  institutions  by  nature  of  work      47 
H.      Institutions  for  dependents  by  type  and  management       .        .      168 

I.      Property  values  of  175  institutions  for  dependents     .        .        .     223 

J.  Maintenance  expense:  Amount  and  per  cent  derived  from  pub- 
lic funds  for  175  institutions  for  dependents  ....     224 

K.  Capacity  and  children  in  care  for  175  institutions  for  de- 
pendents        225 

L.      Per  capitas  for  current  expense  and  permanent  investment  for 

175  institutions  for  dependents 225 

M.  Salaries  of  employes  and  children  per  employe  for  175  institu- 
tions for  dependents        .  226 

N.     Feeble-minded  persons  in  Pennsylvania  institutions,  19 1 3  271 

O.      Work  under  Mothers'  Assistance  Act  in  Allegheny  County  and 

Philadelphia  County  during  1914 282 


INDEX  TO  STATISTICAL  TABLES 

GENERAL   TABLES 

Chapters  Relating  to  These  Tables  Immediately  Precede  Them 

(Footnotes  will  be  found  at  the  close  of  each  table.     For  list  of  abbre- 
viations used  in  tables  see  page  xvii.) 

Number      Sections      Page  of  table 
Table      Groups  of  agencies  or  institutions      of  insti-      in  set  of         or  of  first 

tutions         tables        section  of  set 


Miscellaneous  Institutions  for 
Children 

Almshouses  and  poorhouses   .      80=* 
Detention  homes  of  juvenile  courts 
State   and   county   homes   for   de- 
pendents        

Homes    and    training    schools    for 

delinquents 

Homes    and    training    schools    for 

defectives 

Institutions  for  crippled  children  . 


7,    Summary  for  miscellaneous  insti- 
tutions for  children     ...       35 


I 

60 

;   9 

2 

69 

5 

4 

76 

11 

4 

9' 

4 

4 

lOI 

6 

4 

no 

117 


Child-caring    Agencies 

General  child-caring  agencies 
County  children's  aid  societies  of 

Eastern  Pennsylvania 
County  children's  aid  societies  of 

Western  Pennsylvania 
Humane  societies  for  children 
Special  child-caring  agencies  .      7 


5 

3 

129 

9 

f 

3 

135 

23 

3 

142 

9 

3 

I 

148 
156 

13.    Summary  for  child-caring  agencies 
xiv 


46 


159 


INDEX    TO    STATISTICAL   TABLES 


Private  Institutions  for  Dependents 


14.  Nonsectarian  orphanages  and  homes 

— Cottage  type    .... 

15.  General    church    orphanages    and 

homes — Cottage  type. 

16.  Nonsectarian       orphanages       and 

homes — Congregate  type   . 

17.  Cathohc  orphanages  and  homes — 

Congregate  type  .... 

18.  General    church    orphanages    and 

homes — Congregate  type   . 

19.  Institutions  for  combined  care  of 

adults  and  children     . 


20.  Summary   for   private   institutions 

for  dependents     .... 

21.  General  summary  for  all  agencies 

and  institutions    .... 


24 

1 

4 

174 

19 

1 

4 

182 

53 

4 

190 

27 
1 

4 

202 

30 

f 

4 

209 

22 

4 

218 

175 

3 

227 

256 

3 

234 

^Not  included  in  summaries;  if  included,  the  grand  total  of  agencies 
and  institutions  would  be  343. 


GLOSSARY   OF  ABBREVIATIONS 


Accom. 

.Accommodation 

Exp. 

Expenses 

Admin. 

Administration 

Admiss. 

Admission 

F 

Female 

Affil. 

Affiliation 

Fam. 

Family 

Agen. 

Agency  or  agencies 

Agt. 

.Agent  or  agents 

Gen. 

General 

Agrl. 

Agricultural 

Amer. 

American 

Illeg. 

Illegitimate 

Appl. 

Applicants  or  application 

Indust. 

Industrial 

Assoc. 

Association  or  associated 

Inf. 

Infancy 

Asy. 

Asylum 

Inst. 

Institution  or  institution; 

Interdenom 

.   Interdenominational 

Bd. 

Board 

Inves. 

Investigation 

Benefic. 

Beneficiaries 

Benev. 

Benevolent 

Luth. 

Lutheran 

Bldg. 

Building 

Bur. 

Bureau 

M 

Male 

Mem. 

Memorial 

C.  A.  S. 

Children's  Aid  Society 

Meth. 

Methodist 

Cath. 

Catholic 

Mgr. 

Manager  or  managers 

Char. 

Charity  or  charities 

Misc. 

Miscellaneous 

Chdn. 

Children 

Miss. 

Mission  or  missionary 

Co. 

County 

Mos. 

Months 

Col'd 

Colored 

Com. 

Committee 

Neg. 

Neglected 

Congr. 

Congregate 

No. 

Number 

Cott. 

Cottage 

Nonsec. 

Nonsectarian 

Def. 

Defective 

Off. 

Officer  or  officers 

Del. 

Delinquent 

Dep. 

Dependent 

Pa. 

Pennsylvania 

Dept. 

Department 

Perm. 

Permanent 

Deten. 

Detention 

Phila. 

Philadelphia 

Dir. 

Director  or  directors 

Pres. 

President 

Disch. 

Discharge 

Presby. 

Presbyterian 

Prob. 

Probation 

E. 

East  or  eastern 

Prot. 

Protestant 

Epil. 

Epileptic 

Prot  'y 

Protectory 

Episc. 

Episcopal 

Evan. 

Evangelical 

Recep. 

Reception 

Excel. 

Excellent 

Rec'd 

Received 

GLOSSARY    OF    ABBREVIATIONS 


Ref. 

Referred 

Sup. 

Superior 

Rel. 

Relative  or  relatives 

Supvn. 

Supervision 

Relig. 

Religious 

Supt. 

Superintendent 

Res. 

Resident 

Restr'n 

Restriction 

Temp. 

Temporary 

Ret. 

Returned 

Tp. 

Township 

Rom. 

Roman 

Tr. 

Trans. 

Trustees 
Transferred 

Sch. 

School 

Sec. 

Section 

Vol. 

Voluntary,    volunteer    or 

Seer. 

Secretary 

volunteers 

Sep. 

Separate 

So. 

South 

W. 

West  or  western 

Soc. 

Society 

S.  P.  C.  C. 

Society  for  the  Prevention 

Yr. 

Year 

of  Cruelty 

to  Children 

Yrs. 

Years 

PART  ONE 
INTRODUCTORY 


In  the  last  analysis  our  social  program  is  based  upon  experience  with 
individuals.  It  may  or  may  not  be  our  own  experience.  .  .  .  That 
experience  may  suggest  new  ideas;  it  may  corroborate  or  confirm  ideas  which 
have  their  origin  elsewhere;  it  may  demonstrate  that  certain  ideas  are 
erroneous  or  impracticable;  or  finally,  it  may  supply  us  with  abundant  illus- 
trations with  which  to  reinforce  the  arguments  in  behalf  of  particular  meas- 
ures.— Edward  T.  Devine. 

What  we  need  in  this  country  is  not  more  evidence  of  luxury  and 
extravagance,  but  a  knowledge  of  our  own  fundamental  needs,  and  a  dis- 
position to  meet  them.  The  Titanic  did  not  need  a  swimming  tank,  it 
needed  life-boats  and  a  better  life-saving  service.  And  our  Ship  of  State 
needs  to  be  so  equipped  that  its  first  regard  shall  be  for  the  life  and  well- 
being  of  all  the  people,  and  so  organized  and  sensitive  that  it  shall  reach  its 
friendly  protective  care  to  the  least  and  most  humble  child  in  the  most 
obscure  part  of  this  great  land. — Sherman  C.  Kingsley. 

Statistics  tell  only  part  of  a  truth,  just  as  a  photograph  does.  It  tells 
the  black  and  white  truth,  but  does  not  tell  the  color  truth.  And  we  cannot 
get  all  of  the  facts  in  any  partial  way — not  all  in  tabulated  sheets,  not  all 
in  a  photograph. — Albion  Fellows  Bacon. 

Statistical  and  scientific  study  and  tabulation  have  gone  further  in 
dealing  with  delinquent  and  defective  than  with  dependent  children.  .  .  . 
Perhaps  by  a  statistical  study  of  results  we  could  learn  what  children,  if  any, 
need  the  regimen  of  institutional  care;  what  children,  if  any,  thrive  under 
the  training  of  a  family  home;  what  children,  if  any,  and  what  circumstances, 
lend  themselves  to  successful  free  placing;  what  children,  if  any,  and  what 
circumstances,  require  a  boarding  home.  Statistical  information,  inter- 
preted by  philosophy,  is  needed  to  give  convincing  evidence  on  these 
important  questions. — C.  C.  Carstens. 

It  is  a  magnificent  thing  to  be  hitched  up  to  a  job  which  can  never  be 
finished;  magnificent,  because  it  means  that  our  opportunity  is  endless,  that 
we  shall  never  come  to  the  end  of  its  interesting  possibilities.  ...  If 
we  take  the  infinite  for  what  it  is,  it  is  inspiring,  first,  last,  and  all  the  time. 
It  is  only  when  we  make  the  pardonable,  but  illogical,  efi"ort  to  finish  up  and 
bound  that  which  is  in  its  very  nature  endless  and  unmeasurable,  that  we 
fall  into  disaster. — Richard  C.  Cabot. 


INTRODUCTION 

By  Hastings  H.  Hart,  LL.D. 
Director  Department  of  Child-Helping  of  the  Russell  Sage  Foundation 

PENNSYLVANIA  is  far  in  advance  of  any  other  state  of  the 
Union  in  the  magnitude  and  generosity  of  her  investments 
for  dependent,  delinquent,  and  defective  children.  In  the 
study  here  exhibited  Dr.  Slingerland  has  recorded  no  less  than  210 
institutions  and  53  societies  organized  for  child  welfare  work. 
The  state  of  New  York  comes  next  with  about  188  institutions 
and  child  welfare  societies. 

Comparison  of  Eight  States 

We  have  made  as  full  a  list  as  possible  of  the  corresponding 
institutions  and  societies  for  the  states  of  New  York,  California, 
iMaryland,  New  Hampshire,  Massachusetts,  Ohio,  and  the  District 
of  Columbia,  which  show  the  largest  relative  amount  of  institu- 
tional provision  for  children,  with  the  results  shown  in  Table  A. 

Pennsylvania's  Liberality 

It  will  be  seen  from  the  statements  in  Table  A  that  the  state 
of  Pennsylvania  has  invested  in  institutions  for  dependent,  delin- 
quent, and  defective  children,  about  $76,000,000,*  an  amount  equal 
to  about  ^10  for  every  man,  woman,  and  child  in  the  common- 
wealth. This  study  includes  210  institutions,  but  more  than  half 
of  this  great  investment  is  in  two  institutions:  Girard  College 
($34,000,000),  and  the  Widener  Memorial  School  for  Crippled 
Children  ($5,132,000);  but  even  omitting  these  two  institutions, 
Pennsylvania's  investment  for  these  classes  of  children  amounts  to 
$36,747,000,  which  is  $479,400  for  each  100,000  inhabitants,  a  ratio 

*This  does  not  include  Carson  College  for  Girls  or  Ellis  College  for  Girls, 
with  assets  of  about  $9,000,000,  because  they  are  not  yet  in  operation. 


CHILD   WELFARE    WORK    IN    PENNSYLVANIA 

exceeded  only  in  the  states  of  New  York  and  Maryland  and  the 
District  of  Columbia. 

TABLE  A.— INSTITUTIONS  FOR  DEPENDENT,  DELINQUENT,  AND  DEFECTIVE 
CHILDREN" 


Amounts  invested  in  children's  institutions 


Pennsylvania 
District  of  Columbia 
New  York 
Maryland 
California 
New  Hampshire 
Ohio 
Massachusetts 


175,879,100 

$989,900 

2,280,000 

689,000 

56,745,000 

622,600 

6,644,000 

512,900 

10,614,300 

446,400 

1,650,000 

383,200 

12,780,000 

268,100 

8,290,000 

246,300 

Pennsylvania,  omitting  Girard   College 
and  Widener  Memorial  School 


$36,747,100 


$479,400 


District  of  Col 

New  York 

California 

Massachusetts 

Pennsylvania 

Maryland 

Ohio 

New  Hampshire 


Current  expenses  of  children's  institutions 


$379,000 

$114,500 

8,027,000 

88,100 

1,699,256 

71,470 

2,021,000 

60,000 

4,183,000 

54.600 

671,000 

SI. 800 

2,008,000 

42,100 

181,000 

42,000 

New  York 

District  of  Columbia 

California 

Maryland 

Ohio 

New  Hampshire 

Pennsylvania 

Massachusetts 


Children  in  institutions 


4.; 
15.570 

I.37S 
21,859" 

7.935 


a  The  figures  are  given  for  both  public  and  private  institutions.  They  cover  the  nearest 
year  to  1912  obtainable,  ranging  from  1910  to  1913- 

*>  The  statements  are  approximate  for  the  District  of  Columbia,  New  York,  Ohio,  and  New 
Hampshire;  the  figures  for  institutions  not  listed  by  the  United  States  Census  or  state  reports 
being  partly  estimated. 

=  This  number  differs  slightly  from  that  in  the  general  tables  (2l,74S)  because  it  includes 
certain  institutions  for  delinquents  not  listed  there. 


INTRODUCTION 

We  have  considered  omitting  Girard  College  and  the  Widener 
Memorial  School  from  the  tables  because  they  derange  the  com- 
parisons for  all  of  the  institutions  included  in  the  study;  it  did  not 
seem  fair,  however,  to  exclude  them  because  they  are  an  essential 
factor  in  the  child-helping  work  of  the  state.  It  seemed  best, 
therefore,  to  make  the  comparative  tables  in  two  ways,  showing 
first  the  statistics,  including  these  two  institutions;  and  second 
the  statistics,  leaving  them  out  of  account. 

This  splendid  array  of  establishments  for  the  benefit  of  the 
needy  children  of  the  state  is  a  noble  monument  to  the  generosity 
of  her  citizens;  not  only  the  millionaires  who  of  their  abundance 
have  laid  great  foundations  to  promote  the  welfare  of  thousands 
of  children,  but  also  the  multitudes  of  good  people  who  have 
united  to  combine  small  gifts  for  the  establishment  of  modest 
homes  for  children  in  all  parts  of  the  state.  The  child-helping 
work  in  Pennsylvania  is  quite  as  remarkable  for  its  small  insti- 
stitutions  as  for  its  great  ones,  as  may  be  seen  by  the  comparison 
(see  Table  B)  with  the  size  of  similar  institutions  in  New  York, 
which  shows  that  the  orphanages  and  children's  homes  of  Penn- 
sylvania are,  on  the  average,  a  little  more  than  one-third  as  large 
as  those  in  New  York. 

TABLE  B.— RELATIVE  SIZE  OF  INSTITUTIONS  FOR  DEPENDENT  CHILDREN* 


Children  per  institution 


New  York     Pennsylvania 


Average  number  of  children 
per  institution 


New  York         Pennsylv 


More  than  i.ooo 

7 

2 

1.677 

1,319 

500  and  less  than  i.ooo 

14 

I 

682 

575 

250  and  less  than  500 

18 

100  and  less  than  250 

44 

29 

150 

160 

50  and  less  than  100 

35 

39 

62 

68 

Less  than  so 

31 

76 

31 

25 

»  Private  institutions  only. 

t'  Not  including  22  institutions  for  combined  care  of  adults  and  children,  and  one  institu- 
tion for  which  the  number  of  children  is  not  available. 

The  smaller  institutions  of  Pennsylvania  give  opportunity 
for  homelike  conditions  and,  while  some  of  them  lack  the  necessary 

5 


CHILD   WELFARE   WORK    IN    PENNSYLVANIA 

equipment  to  do  efficient  work,  many  of  them  serve  only  as  tem- 
porary receiving  homes  until  the  children  can  be  distributed  into 
the  more  favorable  environment  of  selected  family  homes.  On 
the  whole,  the  smaller  Pennsylvania  unit  is  much  to  be  preferred. 
It  is  a  significant  fact  that  the  ratio  of  all  children  in  institutions  in 
Pennsylvania  per  100,000  inhabitants  (285)  is  only  a  little  more 
than  half  that  of  the  state  of  New  York  (531).  The  ratio  of  de- 
pendent children  in  institutions  in  Pennsylvania  (203)  is  less  than 
half  that  in  New  York  (409). 

Institutions  of  Eastern  and  Western  Pennsylvania 

The  state  of  Pennsylvania  is  divided  by  the  Allegheny 
Mountains  into  two  sections  which  differ  both  in  the  amount  and 
quality  of  their  work  for  children.  The  eastern  section  has  the 
two  great  endowed  institutions,  Girard  College  and  the  Widener 
Memorial  School;  but,  even  without  these  two  institutions,  the 
eastern  section  has  more  liberal  provision  for  children  and  more 
efficient  work  than  the  western  section. 

The  line  between  the  eastern  and  western  sections  is  not 
clearly  defined,  but  we  have  counted  the  following  27  counties  in 
the  western  section:  Allegheny,  Armstrong,  Beaver,  Butler,  Cam- 
bria, Cameron,  Center,  Clarion,  Clearfield,  Clinton,  Crawford,  Elk, 
Erie,  Fayette,  Forest,  Greene,  Indiana,  Jefferson,  Lawrence, 
McKean,  Mercer,  Potter,  Somerset,  Venango,  Warren,  Washing- 
ton, and  Westmoreland.  The  remaining  40  counties  are  included 
in  the  "eastern  section,"  which,  according  to  the  census  of  1910, 
had  4,736,596  inhabitants,  while  the  western  section  had 
2,928,515. 

Table  C  and  the  statements  which  follow  exhibit  the  work 
and  the  expenditures  in  behalf  of  dependent,  delinquent,  and 
defective  children  in  the  two  sections  of  the  state,  and  indicate  the 
disadvantages  under  which  the  institutions  of  the  western  section 
labor  for  lack  of  sufficient  financial  resources. 

The  foregoing  statement  reveals  the  fact  that  while  the  capi- 
tal invested  in  institutions  for  children  in  the  eastern  section  of 
Pennsylvania,  in  proportion  to  the  population,  is  over  four  times  as 
much  as  in  the  western  section,  the  average  number  of  children  in 

6 


INTRODUCTION 

TABLE  C— COMPARISON  OF  WORK  AND  RESOURCES  OF  INSTITUTIONS  FOR 
DEPENDENT.  DELINQUENT.  AND  DEFECTIVE  CHILDREN  IN  EASTERN 
AND  WESTERN  SECTIONS  OF  PENNSYLVANIA" 


Eastern  section,  40  counties 


All 
institutions 


Omitting 

Girard  and 

Widener 


Western 
section, 


Entire  population,  census  of  1910 
Number  of  institutions  for  children 
Average  number  of  children  in  care 
Average  number  of  children  per  institution 
Children  placed  in  family  homes 
Capital  invested 
Current  expense 
Current  expense  per  child 
Public  funds  received 
Public  funds  per  child 

FiGtTRES  PER  100,000  Inhabitants 
Number  of  institutions 
Average  number  of  children  in  care 
Children  placed  in  family  homes 
Capital  invested 
Current  expense 
Public  funds  received 


4.736,596 

4.736,596 

2,928,51s 

132 

130 

78 

14.340 

12,750 

7,410 

109 

98 

95 

1,281 

1,281 

741 

S66,233.6oo 

J27, 101,600 

$9,645,500 

2.970,400 

2.286.500 

1,212,900 

207 

179 

164 

806,800 

806,800 

629,710 

56 

63 

8S 

2.8 

2.7 

2 

303 

269 

253 

27 

27 

25 

$1,398,300 

$572,200 

$329,400 

62,700 

48,300 

41.400 

17.030 

17,030 

21,500 

Including  public  and  private  institutions. 


care  for  each  100,000  people  is  only  one-fifth  greater,  being  303  in 
the  eastern  section  against  253  in  the  western  section. 

The  current  expenses  are  larger  in  the  eastern  section,  in 
proportion  to  the  population  and  also  in  proportion  to  the  number 
of  children  cared  for.  This  would  be  expected,  in  view  of  the 
larger  resources  of  the  eastern  section.  The  current  expense 
account  is  $62,700  for  each  100,000  people  in  the  east,  as  against 
$41,400  in  the  west.  The  expense  per  child  is  $207  in  the  east,  as 
against  $164  in  the  west. 

If  we  eliminate  the  great  institutions,  Girard  College  and  the 
Widener  Memorial  School,  the  differences  are  reduced,  but  the 
balance  is  still  largely  in  favor  of  the  eastern  section,  except  in  the 
amount  of  public  funds  received,  which  is  $21,500  for  each  100,000 
people  in  the  western  section  as  against  $17,030  in  the  eastern 
section. 

It  is  not  safe  to  jump  at  conclusions  from  these  comparisons. 
The  larger  expenditure  in  the  east  mayor  may  not  represent  extrav- 
agance; the  smaller  expenditure  in  the  west  may  or  may  not 
represent  wise  economy  on  the  one  hand  or  niggardliness  on  the 

7 


CHILD   WELFARE    WORK    IN    PENNSYLVANIA 

Other.  The  larger  expenditure  of  public  funds  in  the  western  sec- 
tion may  represent  discrimination  on  the  part  of  the  legislature  in 
favor  of  the  west,  or  it  may  be  simply  a  due  recognition  of  the 
fact  that  the  private  resources  of  the  west  are  less  than  those  of 
the  east. 

State  and  County  Homes 

There  are  in  Pennsylvania  five  state  and  county  homes  for 
dependent  children  containing  about  620  children.  Of  these 
homes  two  are  located  in  Eastern  Pennsylvania  and  three  in  Western 
Pennsylvania.  The  investment  in  these  five  homes  for  land, 
buildings,  and  so  on,  is  ^3 1 5,000,  and  their  current  expenses  amount 
to  about  $150,000  annually. 

There  is  rather  a  surprising  difference  between  the  showing 
made  by  these  homes  in  the  two  sections  of  the  state  as  indicated 
by  the  following  statement  by  ratios: 


Amounts  per  100,000  inhabitants 


Eastern 
section 


Western 
section 


Average  number  of  children  in  care 
Children  placed  in  family  homes 
Capital  invested 
Current  expense 


10.6 
0.5 

$4,032 
2,647 


4.1 
1.6 

^4.234 
848 


It  will  be  observed  that  while  the  amount  of  capital  invested 
per  100,000  inhabitants  is  less  in  the  east  than  in  the  west,  the 
expense  per  100,000  inhabitants  is  three  times  as  great  in  the  east. 
The  expense  per  child  is  about  20  per  cent  greater  (I249  per  child 
in  the  east  as  against  $207  in  the  west). 

Private  Cottage  Institutions  for  Dependent  Children 

There  are  43  private  cottage  institutions  for  dependent  chil- 
dren included  in  the  study.  Thirteen  of  these  institutions  were 
founded  before  1890,  six  between  1890  and  1900,  and  24  from  1900 
to  19 1 3.  The  following  is  a  summary  of  their  statistics,  reduced 
to  ratios: 


INTRODUCTION 

Amounts  per  100,000  inhabitants* 

Eastern 
section 

Western 
section 

Average  number  of  children  in  care 
Children  placed  in  family  homes 
Capital  invested 
Current  expense 
Public  funds  received 

27 

$210,100 

8,120 

629 

16 

2.9 

$21,800 

3,100 

508 

*  Including  private  institutions  only. 

This  statement  reveals  the  fact  that  the  eastern  section  has 
ten  times  as  much  money,  per  100,000  inhabitants,  invested  in 
cottage  institutions  which  represent  the  most  modern  equipment 
and  methods,  as  the  western  section,  while  the  current  expense  is 
less  than  three  times  as  great.  The  excess  in  investments  in  the 
eastern  institutions  is  largely  due  to  endowments.  The  difference 
in  the  relative  expenditures  for  current  expense  is  largely  due  to 
superior  equipment  and  more  efficient  administration.  In  some 
of  the  western  institutions  the  entire  expenditure  for  salaries  is 
not  more  than  would  be  adequate  to  secure  the  services  of  one 
competent  employe. 

Private  Congregate  Institutions  for  Dependent  Children 

The  study  includes  1 10  private  institutions  of  the  congregate 
type  for  dependent  children,  of  which  25  have  been  organized 
within  the  last  1 5  years.  The  following  is  a  summary  of  the  statis- 
tics of  these  institutions,  reduced  to  ratios: 


Amounts  per  100,000  inhabitants' 


Eastern  section, 
40  counties 


All 
institutions 


Omitting 

Girard  and 

Widener 


Western 
section, 

27 
counties 


Average  number  of  children  in  care 
Children  placed  in  family  homes 
Capital  invested 
Current  expense 
Public  funds  received 


•75        144  '35 

'4-6       14.6  7-3 

§943,200  $225,400  §177,800 

31,500      19,300  16,300 

2,647      2,647  2,888 


*  Including  private  institutions  only. 


CHILD   WELFARE   WORK    IN    PENNSYLVANIA 

The  investment  per  100,000  inhabitants  in  private  congregate 
institutions  in  the  western  section  is  only  19  per  cent  of  that  in  the 
eastern  section,  but  the  annual  expenditure  for  current  expense  in 
the  west  is  52  per  cent  of  that  in  the  east,  while  the  number  of 
children  cared  for  is  77  per  cent.  In  other  words,  with  an  invest- 
ment only  one-fifth  as  large  in  proportion  to  the  population,  and  a 
current  expense  fund  only  one-half  as  large,  the  west  is  taking  care 
of  three-fourths  as  many  children  in  proportion  to  the  population 
as  the  east.  As  a  result  we  find  that  the  annual  expenditure  per 
child  is  $180  in  the  east  and  only  ^120  in  the  west.  The  per 
capita  expense  in  the  east  is  not  excessive  in  these  times,  and  the 
expenditure  in  the  west  is  too  little  to  enable  the  institutions  to  do 
justice  to  their  children,  either  as  to  physical  care  or  as  to  educa- 
tion. This  is  all  the  more  true  in  those  institutions  which  show  a 
current  expense  of  less  than  |ioo  per  capita. 

Cottage  and  Congregate  Institutions  Combined 

The  total  investment  in  private  institutions  for  dependent 
children,  not  including  22  institutions  for  the  combined  care  of 
adults  and  children,  is  ^54,627,200  in  the  eastern  section  as  against 
$5,845,400  in  the  western  section,  which  is  almost  ten  times  as 
much.  Girard  College  has  $34,000,000  of  the  eastern  investment 
of  $54,627,200,  leaving  only  $20,627,200  for  the  remaining  98  insti- 
tutions; but  omitting  Girard  College  we  still  have  an  investment 
of  $435,500  for  each  100,000  of  the  population  in  the  east  as  against 
$199,600  in  the  west. 

Institutions  for  Delinquent  Children 

We  have  listed  in  Pennsylvania  eleven  homes  and  training 
schools  for  delinquent  children,  of  which  seven  are  located  in  the 
eastern  section  and  four  in  the  western  section.  The  average 
population  of  the  eleven  institutions  was  about  2,650.  The  amount 
invested  was  about  $4,000,000,  and  the  annual  expenditure  about 
$546,000.  The  current  expense  per  child  was  $188  in  the  eastern 
section  and  $254  in  the  western.  The  comparative  differences 
between  the  institutional  work  for  delinquents  in  the  eastern  and 
western  sections  is  indicated  by  the  following  statement: 

10 


u   « 


r^^ 


O  -:q 
^1 


u  8 


INTRODUCTION 


Amounts  per  100,000  inhabitants' 


Eastern 
section 


Western 
section 


Average  number  of  children  in  care 

40 

25 

Children  placed  in  family  homes 

.         ^-9 

3-2 

Capital  invested 

$49,300 

$57,100 

Current  expense 

7.565 

6,407 

»  Including  public  and  private  institutions. 

It  is  interesting  to  note  that  the  number  of  dehnquent  chil- 
dren per  100,000  inhabitants  in  care  in  the  two  sections  is  8  to  5 
in  favor  of  the  eastern  section;  but  that  the  relative  amount  of 
capital  invested  is  one-seventh  greater  in  the  west  than  in  the  east. 
It  is  interesting  also  to  observe  that  while  the  expense  per  inhabit- 
ant is  less  in  the  west  because  of  the  smaller  relative  number,  the 
cost  per  child  is  35  per  cent  greater  in  the  west  than  in  the  east. 
It  would  appear  that  it  might  be  profitable  to  study  the  possibility 
of  standardizing  this  work  in  the  two  sections  of  the  state.  The 
difference  is  partly  due  to  the  fact  that  one  of  the  western  institu- 
tions is  new  and  is  in  process  of  development,  while  another  has 
been  undergoing  gradual  reconstruction. 

Detention  Homes  of  Juvenile  Courts 

Although  the  law  contemplates  a  detention  home  for  the 
care  of  children  awaiting  the  action  of  the  juvenile  court  in  every 
county,  there  were  only  nine  such  detention  homes  in  Pennsylvania 
in  19 1 2,  of  which  four  were  in  the  eastern  section  and  five  in  the 
western  section.  Only  three  have  buildings  of  their  own,  located  at 
Philadelphia,  Norristown,  and  Erie.  Only  two,  those  in  Pitts- 
burgh and  Philadelphia,  contained  as  many  as  10  children  at  the 
close  of  the  year.  The  total  number  of  children  cared  for  during 
the  year  was  4,65 1 .  No  ratios  are  given  for  the  detention  homes 
for  the  reason  that  only  four  of  them  handled  any  considerable 
number  of  children. 

Dr.  Slingerland  has  called  attention  to  the  necessity  for  pro- 
viding detention  homes  throughout  the  state.     In  cases  where  the 

II 


CHILD   WELFARE    WORK    IN    PENNSYLVANIA 

number  of  children  is  not  sufficient  to  justify  the  county  in  main- 
taining a  pubHc  institution  for  that  purpose,  it  is  entirely  practic- 
able to  arrange  with  some  responsible  citizen  to  receive  and  care 
for  any  such  children  in  a  private  home  at  a  suitable  per  diem  rate. 
This  method  has  been  in  successful  operation  even  for  so  large  a  city 
as  Boston. 

Institutions  for  Feeble-Minded  Children 

The  state  of  Pennsylvania  has  four  institutions  for  feeble- 
minded and  epileptic  children,  two  in  the  eastern  part  of  the  state 
and  two  in  the  western  part.  Two  of  these  are  public  institutions, 
maintained  and  administered  by  the  state;  two  are  private  insti- 
tutions, conducted  by  private  boards  of  trustees.  One  of  the  latter 
derives  74  per  cent  of  its  maintenance  from  public  funds,  and  the 
other,  43  per  cent. 

These  four  institutions  had  a  total  population  in  191 3  of 
3,1 14  inmates.  The  amount  invested  is  about  ^3,861,000  and  the 
annual  expense  about  ^682,000.  The  current  expense  per  child 
was  $238  in  the  eastern  section  and  $202  in  the  western.  The 
following  is  a  statement  of  the  work  for  feeble-minded  children, 
reduced  to  ratios: 


Amounts  per 

100,000 

inhabitants' 

Eastern 
section 

Western 
section 

Average  number  of  children  in  care 
Capital  invested 
Current  expense 

31 

$52,200 

7.430 

.        56 

$47,500 

11,276 

»  Including  public  and  private  institutions. 


Institutions  for  Crippled  Children 

Pennsylvania  has  six  institutions  for  crippled  children,  four 
in  the  eastern  section  and  two  in  the  western,  with  a  united  capac- 
ity of  295.  The  total  investment  is  ^5,753,000,  of  which  $5, 132,000 
is  that  of  the  Widener  Memorial  School  in  Philadelphia.  The 
current  expense  amounts  to  about  1 164,000  per  year. 

12 


INTRODUCTION 


The  Widener  Memorial  School  stands  in  a  class  by  itself. 
Omitting  the  Widener  Memorial  School,  the  following  is  a  state- 
ment of  the  work  for  crippled  children,  reduced  to  ratios: 


Amounts  per  100,000  inhabitants" 


Eastern  Western 

section  section 


Average  number  of  children  in  care  2.1  2.5 

Capital  invested  ^,300  $6,100 

Current  expense  661  873 

"  Including  private  institutions  only. 

Dependent,  Delinquent,  and  Defective  Children* 

Table  D  presents  a  comparison  of  children's  institutions  in 
four  states,  as  nearly  as  can  be  ascertained  from  the  reports  of  the 
United  States  Bureau  of  the  Census,  the  state  boards  of  charities, 
and  the  institutions  themselves. 

It  will  be  seen  that  there  were  reported  in  the  state  of  New 
York  dependent,  delinquent,  feeble-minded,  and  crippled  children 
in  institutions  to  the  number  of  48,400;  in  California  8,860;  in 
Maryland  4,389;  and  in  Pennsylvania  21,859.  The  total  number 
of  children  reported  in  institutions  out  of  each  100,000  inhabitants 
was  as  follows:  New  York  531,  California  372,  Maryland  339,  and 
Pennsylvania  285. 

The  average  current  expense  for  each  child  was  as  follows: 
New  York  $166,  California  $192,  Maryland  $13'^,  and  Pennsyl- 
vania $191. 

The  amount  of  current  expense  in  children's  institutions  for 
each  100,000  inhabitants  was  as  follows:  New  York  |i88,075,  Cali- 
fornia $71,470,  Maryland  $51,840,  and  Pennsylvania  $54,580. 

Dependent  Children  in  Institutions.  The  number  of 
dependent  children  in  institutions  for  each  100,000  inhabitants;  in 
the  states  named  is  approximately  as  follows:  New  York  409,  Cali- 
fornia 290,  Maryland  170,  Pennsylvania  203;  the  expense  of  caring 
for  dependent  children  in  institutions  for  each  100,000  inhabitants: 

*  See  Table  D,  page  14. 

13 


CHILD   WELFARE   WORK    IN    PENNSYLVANIA 


TABLE  D.— COMPARISON  OF  INSTITUTIONS  FOR  DEPENDENT,  DELINQUENT 
AND  DEFECTIVE  CHILDREN  IN  FOUR  STATES.  1912* 


New  York 

California 

Maryland 

Pennsylvania 

NxMBER  OF  Inhabitants 

9,113.600 

2,377.500 

1.295.300 

7,665,100 

Average  Number  of  Children 
Reported  in  Institutions 

Number 

Delinquent 

Feeble-minded 

Crippled 

37.267 
6,146 
3.802 
1.18S 

6,89s 

1,029 

936 

i!78o 

'It 

15,576 

2,900'' 

3. 114 

269 

Total 

48,400 

8,860 

4.389 

21,859'' 

Number  per  100,000 
Dependent 
Delinquent 
Feeble-minded 
Crippled 

inhabitants 

408.9 
67.4 
41-7 
13.0 

289.7 
43.3 
39.4 

169.6 

137.4 
25-4 
6.4 

203.2 
37.8 
40.6 
3-5 

Total 

531 -I 

372.4 

338.8 

285.2 

Expense  of  Care  of 
Institutions 

Amount 
Dependent 
Delinquent 
Feeble-minded 
Crippled 

Children  in 

JS.685,700 

1.333.900 

733.600 

273.800 

Sl,092,9ll 
426,563 
179.782 

$326,998 
248,890 
57.007 
38.594 

$2,747,177 
590,036 
682,119 
163,920 

Total 

$8,027,000 

$1,699,256 

$671,489 

$4,183,252 

Amount  per  child 
Dependent 
Delinquent 
Feeble-minded 
Crippled 

$153 
217 
193 
231 

I159 
41S 
192 

$149 
140 
173 
465 

$176 
203 
219 
609 

Total 

S166 

5192 

$153 

$191 

Amount  per  100,000 
Dependent 
Delinquent 
Feeble-minded 
Crippled 

inhabitants 

«62,38o 
14,640 
8,050 
3.00s 

S4S.970 
17.940 
7,560 

$25,245 
19. 215 
4.401 
2.979 

$35,840 
7.700 
8,900 
2,140 

Total 

588,075 

571.470 

$51,840 

$54,580 

»  Including  public  and  private  institutions. 

b  Including  several  institutions  for  delinquents  not  listed  in  the  main  Pennsylvania  tables 
and  omitting  the  detention  homes.  This  affects  slightly  the  figures  respecting  delinquents 
throughout  this  table. 


14 


INTRODUCTION 

New  York  $62,380,  California  $45,970,  Maryland  $25,245,  Penn- 
sylvania $35,840;  the  expense  per  child  in  institutions  for  depend- 
ent children:  New  York  $153,  California  $159,  Maryland  $149, 
and  Pennsylvania  $176. 

Delinquent  Children  in  Institutions.  The  number  of 
delinquent  children  in  institutions  for  each  100,000  inhabitants, 
in  the  states  named,  is  approximately  as  follows:  New  York  67, 
California  43,  Maryland  137,  Pennsylvania  38.  The  expense  of 
caring  for  delinquent  children  in  reformatories  for  each  100,000 
inhabitants  is:  New  York  $14,640,  California  $17,940,  Maryland 
$19,215,  Pennsylvania  $7,700.  The  expense  per  child  in  institu- 
tions for  delinquent  children  is:  New  York  $217,  California  $415, 
Maryland  $140,  Pennsylvania  S203. 

Feeble-minded  Children  in  Institutions.  The  number 
of  feeble-minded  in  institutions  for  each  100,000  inhabitants,  in 
the  states  named,  is  approximately  as  follows:  New  York  42, 
California  39,  Maryland  25,  Pennsylvania  41.  The  expense  for 
caring  for  feeble-minded  children  in  institutions  for  each  100,000 
inhabitants  is:  New  York  $8,050,  California  $7,560,  Maryland 
$4,401,  Pennsylvania  $8,900.  The  expense  per  child  in  institu- 
tions is:  New  York  $193,  California  $192,  Maryland  $173,  Penn- 
sylvania $219. 

In  191 1  a  commission  was  created  in  Pennsylvania  "to  take 
into  consideration  the  number  and  status  of  the  feeble-minded 
and  epileptic  persons."  This  commission  found  1,146  feeble- 
minded persons  in  insane  hospitals  and  2,627  in  almshouses, 
county-care  hospitals,  reformatories,  and  prisons,  most  of  whom 
are  maintained  at  a  much  higher  cost  than  would  be  necessary  in 
custodial  institutions.  A  large  part  of  them  are  feeble-minded 
women  of  child-bearing  age  who  can  not  be  sufficiently  protected 
where  they  now  are.  Two  hundred  and  four  of  them  are  in  reform- 
atories and  prisons  where  they  interfere  seriously  with  the  legit- 
imate work  of  the  institution.  The  commission  estimated  that 
there  were  at  least  20,000  feeble-minded  persons  in  immediate 
need  of  institutional  care  and  they  recommended  a  large  increase 
in  the  institutional  provision — especially  for  women  of  the  child- 
bearing  age. 

The  legislature  of  1913  responded  by  appropriating  $200,000 
3  15 


CHILD   WELFARE    WORK    IN    PENNSYLVANIA 

to  assist  the  city  of  Philadelphia  in  building  for  500  imbeciles  and 
morons  at  Byberry.  They  also  appropriated  $40,000  for  prelimi- 
nary work  upon  a  state  "Village  for  Feeble-Minded  Women." 

Crippled  Children  in  Institutions.  The  number  of 
crippled  children  in  institutions  for  each  100,000  inhabitants,  in 
the  states  named,  is  approximately  as  follows:  In  New  York  13, 
in  California  none,  in  Maryland  6.4,  in  Pennsylvania  3.5.  The 
expense  for  caring  for  crippled  children  for  each  100,000  inhabi- 
tants is:  New  York  $3,005,  California  none,  Maryland  $2,979, 
Pennsylvania  $2,140.  The  expense  per  child  in  institutions  is: 
New  York  $231,  California  none,  Maryland  $465,  Pennsylvania 
$609. 

Girard  College 

The  greatest  institution  for  dependent  children  in  Pennsyl- 
vania is  Girard  College,  for  orphan  boys.  It  has  probably  the 
largest  endowment  of  any  educational  institution  in  America.  The 
college  was  founded  in  1831  and  was  opened  in  1848.  The  value 
of  the  original  bequest  amounted  to  about  $6,000,000,  most  of 
which  consisted  of  lands.  Mr.  Girard  decreed  that  these  lands 
should  not  be  sold,  but  be  rented  or  leased.  The  discovery  of  valua- 
ble coal  deposits  produced  a  large  income  whereby  the  assets  have 
rapidly  increased.  The  value  of  lands,  buildings,  and  endowments 
have  been,  approximately,  as  follows:  1831,  $6,000,000;  1892, 
$15,000,000;  1902,  $24,000,000;  1912,  $34,000,000,  of  which 
$5,000,000  were  invested  in  buildings  and  equipment.  The  assets 
are  now  increasing  at  the  rate  of  about  $1,500,000  per  year. 

The  capacity  of  the  college  is  1,528  boys,  and  the  average 
number  is  nearly  1,500.  About  9,000  boys  have  enjoyed  the  bene- 
fits of  the  college  since  its  opening. 

The  annual  expenses,  at  the  last  report,  were  $577,000, 
about  $386  per  boy,  absorbing  only  about  27  per  cent  of  the 
income.  This  amount  is  entirely  sufficient  for  the  present  numbers 
and  the  present  curriculum.  It  provides  a  staff  of  about  450  mem- 
bers. There  are  primary,  grammar,  and  high  schools,  and  the  fol- 
lowing mechanical  pursuits:  mechanical  drawing,  carpentry  and 
woodworking,  machine  shop  practice,  electrical  construction, 
foundry  and  forge  practice,  and  smithing.     Instruction  is  given  in 

16 


INTRODUCTION 

bookkeeping,  office  practice,  shorthand,  typewriting,  and  com- 
mercial law. 

Boys  are  received  at  six  to  ten  >'ears  of  age  and  are  dismissed 
before  reaching  the  age  of  eighteen.  Most  of  them  are  received 
between  the  ages  of  eight  and  nine  and  dismissed  between  the 
ages  of  sixteen  and  seventeen. 

There  is  no  question  as  to  the  great  work  which  has  been 
accomplished  for  the  9,000  boys  who  have  come  under  the  care  of 
this  great  school,  or  of  the  conscientious  fidelity  with  which 
the  trustees  and  officers  have  discharged  their  obligations. 
It  is  recognized,  however,  that  the  time  has  come  in  the  evolu- 
tion of  the  college  when  it  is  necessary,  in  order  to  carry  out  the 
beneficent  purpose  of  the  founder,  to  enlarge  the  scope  of  the  col- 
lege. If  there  were  no  other  reason,  the  fact  that  the  college  is 
unable  to  use  its  income  under  the  prescribed  order,  and  has 
already  accumulated  $34,000,000  of  assets,  would  compel  them  to 
seek  an  enlargement  of  their  opportunities.  The  legislature  and 
the  courts  have  already  modified  the  original  terms  of  the  will  in 
some  respects,  and  they  can  unquestionably  make  further  modifi- 
cations. 

In  view  of  the  fact  that  there  does  not  appear  to  be  a  suffi- 
cient number  of  eligible  "orphan  bo\s"  (that  is,  boys  who  have  lost 
either  both  parents  or  the  father)  in  Pennsylvania  to  utilize  the 
resources  of  the  college,  it  would  seem  that  its  scope  might  be  en- 
larged to  include  any  "dependent  boy,"  as  defined  by  the  laws  of 
Pennsylvania.  If  this  change  should  not  discover  a  sufficient 
number,  it  might  be  necessary  to  negotiate  with  institutions  and 
child-helping  societies  in  the  state  of  New  York,  since  boys  from 
that  state  are  eligible  under  the  terms  of  the  will. 

It  would  seem  desirable  that  one  or  more  branches  of  Girard 
College  should  be  established  in  other  parts  of  Pennsylvania.  An 
examination  of  the  record  shows  that,  out  of  1,512  boys  in  the 
college  in  1912,  about  109  came  from  the  27  western  counties.  If 
a  branch  were  established  in  Western  Pennsylvania  it  would 
doubtless  attract  a  much  larger  number. 

In  the  future  development  of  Girard  College,  the  cottage 
plan  should  be  adopted  and  should  be  developed  along  the  lines 
of  such  institutions  as  the  Good  Will  Farm  at  Hinckley,  Maine; 

17 


CHILD   WELFARE    WORK    IN    PENNSYLVANIA 

the  Children's  Village  at  Chauncey,  New  York;  the  Hebrew 
Sheltering  Guardian  Orphan  Asylum  at  Pleasantville,  New  York; 
and  the  Thorn  Hill  School  at  Warrendale,  Pennsylvania.  The 
Hebrew  Sheltering  Guardian  Orphan  Asylum,  in  particular,  pre- 
sents an  admirable  combination,  for  boys  of  corresponding  age,  of  a 
school  of  letters  and  a  vocational  school  with  practical  and  indus- 
trial training.  By  making  each  cottage  a  separate  domestic  unit, 
and  by  limiting  the  number  to  1 5  or  20  boys,  it  is  possible  to  approx- 
imate the  conditions  of  an  ordinary  family  home  and  to  do  away 
with  most  of  the  evils  of  "institutionalism." 

It  is  generally  recognized  at  the  present  time  that  institu- 
tions of  this  class  ought  to  present  opportunities  for  agricultural 
training,  and  that  those  boys  who  develop  aptitude  for  country  life 
should  be  prepared  and  encouraged  for  it.  It  is  recognized  also 
that,  even  for  boys  who  are  to  make  their  home  in  the  city,  it  is  a 
good  thing  to  learn  something  of  farming,  gardening,  horticulture, 
domestic  animals,  camping,  "hiking,"  swimming,  and  that  it 
is  important  to  have  abundant  room  for  playgrounds  and  for  space 
between  buildings.  For  these  reasons,  nearly  all  of  the  new  estab- 
lishments for  children  are  being  located  on  farms  of  from  50  to 
1,000  acres.  The  New  York  State  Agricultural  and  Industrial 
School  at  Industry,  and  the  Thorn  Hill  School  at  Warrendale, 
Pennsylvania,  have  farm  cottages  each  of  which  has  a  small  farm 
of  30  or  40  acres  which  is  worked  by  the  boys  of  the  cottage,  with 
a  separate  stable,  team,  cows,  and  so  on.  A  central  industrial 
group  of  cottages  provides  for  boys  who  are  receiving  industrial 
training. 

In  his  annual  report  for  191 1,  President  Cheesman  A.  Her- 
rick  of  Girard  College  said:  "In  the  last  annual  report  attention 
was  directed  to  the  desire  of  Stephen  Girard  to  have  his  institution 
founded  under  country  conditions.  .  .  .  The  requirements 
of  Girard  were  that  agriculture  should  be  in  the  list  of  occupations 
to  which  boys  were  to  be  sent  from  the  college.  .  .  .  Under 
present  conditions  we  are  not  making  our  contribution  to  the  great 
need  of  the  time  for  intelligence  on  and  interest  in  the  country. 
Nor  can  I  think  we  are  fully  meeting  the  requirements  set  by  the 
Girard  will.  We  are  not  only  failing  to  render  the  largest  possible 
service  to  the  citv  boy,  but  we  are  doing  even  greater  damage  to 

18 


INTRODUCTION 

the  boys  from  the  rural  districts  in  Pennsylvania,  by  rearing  them 
under  city  conditions  and  giving  them  a  city  education.  . 
From  every  consideration  I  can  see  nothing  but  gain  from  such  a 
rural  establishment.  .  .  .  As  a  matter  of  policy  I  trust  your 
honorable  board  will  deem  it  unwise  ever  to  increase  the  popula- 
tion in  the  present  establishment  of  Girard  College.  .  .  .  Tak- 
ing all  these  facts  into  consideration,  I  am  moved  to  recommend 
in  strong  terms  that  you  take  title  to  a  large  tract  of  land,  so  that 
we  may  plan  for  the  future  development  on  this  of  an  agricultural 
branch  of  the  college." 

This  recommendation  is  eminently  wise  and  ought  to  be 
adopted  without  further  delay. 

Child-Caring  Agencies 

Pennsylvania  has  37  child-placing  societies*  for  the  care  of 
dependent  children,  12  in  the  eastern  section  and  25  in  the  western, 
which  is  about  one-fourth  of  all  the  societies  of  this  class  in  the 
United  States.  In  addition  to  these  the  report  covers  eight 
humane  societies  and  the  Pennsylvania  Society  to  Protect  Children 
from  Cruelty,  five  in  the  eastern  section  and  four  in  the  western, 
which  care  for  neglected  children.  The  following  is  a  summary  of 
the  statistics  of  the  child-caring  agencies,  reduced  to  ratios: 

TABLE  E.— WORK  OF  CHILD-CARING  AGENCIES  IN  PENNSYLVANIA 


Amounts  per  100,000  inhabitants 

Eastern 

Western 

section 

section 

Child- Placing  Societies 

Children  under  care 

66 

40 

Children  reported  placed  in  famUy  homes 

II. 9 

ir.2 

Current  expense 

S3. 125 

I1.S88 

331 

Humane  Societies* 

Children  under  care 

Children  reported  placed  in  family  homes 

4^6 

2.1 

Current  expense 

Public  funds  received 

316 

94 

» Including  the  Pennsylvania  Society  to  Protect  Children  from  Cruelty. 

An  examination  of  this  statement  reveals  the  reason,  in  part 
at  least,  for  the  excess  of  institutional  children  in  the  western  sec- 
*Not  including  seven  special  child-caring  agencies.    See  Table  12,  p.  156. 
19 


CHILD   WELFARE    WORK  IN    PENNSYLVANIA 

tlon.  The  child-placing  societies  of  the  western  district  include 
23  county  children's  aid  societies.  These  societies  pride  them- 
selves upon  doing  all  of  their  work  through  volunteer  agencies  and 
using  no  paid  agents.  The  23  societies  employ  one  "actuary" 
who  keeps  the  joint  records  and  acts  as  an  exchange  agent  for 
the  interchange  of  children  among  the  23  societies.  The  Alle- 
gheny County  society  has  employed  one  paid  agent  at  Pittsburgh. 
The  societies  of  Washington  County  and  Mercer  County  each 
employ  one  paid  agent,  part  time,  paying  in  the  one  case  ^180  per 
year,  and  in  the  other  case  $75  per  year.  Whatever  case  work  is 
done  falls  to  the  volunteer  members  of  the  several  county  societies, 
who  give  a  great  deal  of  time  and  thought  to  this  work. 

It  is  impossible,  however,  for  any  volunteers  to  carry  on  this 
responsible  and  exacting  work  with  due  efficiency.  It  requires  a 
great  deal  of  time  to  give  adequate  investigation  to  such  cases, 
and  it  requires  even  more  time  to  select  homes  properly  and  to 
visit  and  supervise  the  children  after  they  are  placed  out.  The 
whole  matter  of  placing-out  children  is  a  technical  work,  and  it 
requires  people  of  training  and  experience  who  can  give  their  whole 
time  to  it.  The  plan  of  having  such  technical  and  expert  work 
performed  entirely  by  volunteers  harks  back  to  the  days  of  spin- 
ning wheels  and  hand  looms,  the  days  when  doctors  were  few  and 
for  the  most  part  ill-educated,  and  when  trained  nurses  were  un- 
known. Most  of  the  children's  societies  in  Western  Pennsylvania 
keep  very  imperfect  records,  or  none  at  all  worthy  of  the  name; 
they  do  not  seem  to  have  any  conception  of  what  modern  record 
keeping  means. 

In  our  judgment,  the  fact  that  the  western  child-placing 
societies  expended  only  half  as  much  in  proportion  to  population 
as  the  eastern  societies,  and  the  fact  that  they  drew  from  the  public 
treasury  only  28  per  cent  as  much  money  in  proportion  to  the 
population  for  the  maintenance  of  their  societies,  indicate  not 
economy  but  neglect.  Few  if  any  of  these  societies  have  been 
accustomed  to  make  any  adequate  case  study  in  order  to  ascertain 
in  advance  just  what  ought  to  be  done  for  a  child  and  just  who 
ought  to  do  it. 

The  humane  societies  and  the  societies  for  prevention  of 
cruelty  to  children  which  care  for  neglected  children  show  a  similar 

20 


INTRODUCTION 

difference  in  favor  of  the  eastern  section.  The  eastern  societies 
cared  for  more  than  twice  as  many  children  in  proportion  to  the 
population  as  the  western  societies,  and  they  expended  more  than 
six  times  as  much  money  in  proportion  to  the  population.  The 
eastern  societies  are  not  content  to  bring  the  recreant  parent  into 
court  and  punish  him  by  fine  and  imprisonment,  but  they  en- 
deavor to  ascertain  why  the  parent  neglects  the  child  or  treats  it 
with  cruelty  and,  if  possible,  to  bring  to  bear  upon  the  family  such 
reconstructive  influences  as  will  inspire  the  purpose  and  desire  in 
the  hearts  of  the  parents  to  meet  their  parental  obligations.  It  is 
far  better  to  quicken  parental  affection  and  parental  conscience 
than  simply  to  inflict  upon  an  ignorant  and  untrained  parent  a  pun- 
ishment whose  purpose  and  spirit  he  is  entirely  unable  to  compre- 
hend. It  is  being  recognized  that,  in  order  to  accomplish  this 
higher  reconstructive  purpose,  it  is  necessary  to  employ  agents  of 
training  and  education.  The  day  is  past  when  the  interests  of  a 
neglected  child  can  be  committed  to  an  agent  whose  chief  qualifica- 
tions are  physical  courage  and  general  goodwill  towards  suffering 
children. 

The  opinion  developed  by  this  study  is  that  while  there  are 
some  excellent  institutions  in  the  west,  yet  on  the  whole  the  western 
institutions  are  not  as  well  organized  or  conducted  as  those  in  the 
east;  that  there  is  more  disposition  to  retain  children  in  institutions 
in  the  west  than  in  the  east.  And  it  is  unquestionably  true  that  the 
child-placing  societies  of  Eastern  Pennsylvania  are  better  organized 
and  better  supported  than  in  the  west,  and  that  there  is  a  spirit  of 
co-operation  and  team  work  among  the  different  child-placing 
societies  which  is  for  the  most  part  absent  in  the  western  section. 

The  Subsidy  System  in  Children's   Institutions 

The  plan  of  subsidizing  private  institutions  from  the  public 
treasury— especially  from  the  state  treasury— is  practiced  upon  a 
very  large  scale  in  the  state  of  Pennsylvania.  Grants  are  made 
from  the  state  treasury  to  private  institutions  for  dependent,  delin- 
quent, deaf,  blind, feeble-minded,  and  crippled  children ;  also  to  private 
hospitals,  homes  for  the  aged,  homes  for  incurables,  and  so  on. 
State  appropriations  were  given  in  1912  to  301  private  institutions, 

21 


CHILD   WELFARE  WORK   IN    PENNSYLVANIA 


TABLE    F.— SUBSIDIES    TO    INSTITUTIONS    FOR    DEPENDENT    CHILDREN    IN 
FOUR  STATES,  1912^ 


New  York        California       Maryland   Pennsylvania 


Subsidized  Catholic  Institutions 

Number  of  institutions  58 

Average  number  of  children  in  care 

2  Number  21,894 

3  Number  per  institution  377 

4  Number  per  100,000  inhabitants  240.2 


of  care  of  children  in  insti- 
tutions 

5  Amount  $3,006,890 

6  Amount  per  child  137 

7  Amount  per  100,000  inhabitants      32,993 


2,923 

1,438 

183 

144 

122.9 

III 

$350,565   SISI-I05   $350,098 

120  105  99 

14,745  11,665  4.567 


Public  funds 

8  Amount  $2,356,330 

9  Amount  per  institution  40,626 

10  Amount  per  child  108 

11  Amount  per  100,000  inhabitants        25,855 


38,070  $56,766  $70,036 

13,004  S.677  3.686 

71  39  20 

8,751  4.382  914 


Subsidized  Non-Catholic  Institutions 

Number  of  institutions 

Average  number  of  children  in  care 

2  Number 

3  Number  per  institution 

4  Number  per  100,000  inhabitants 


,699 
ISS 
95.5 


Expense  of  care  of  children  in  insti- 
tutions 

5  Amount  $1,589,220 

6  Amount  per  child  183 

7  Amount  per  100,000  inhabitants        17.43S 


846 

2,S96b 

60 

42 

65.3 

33-9 

$579,328       $130,038       $466,546'' 

184  154  180 

24,367  10,039  6,087 


Public  funds 

8  Amount  $839,457 

9  Amount  per  institution  14.990 

10  Amount  per  child  97 

11  Amount  per  100,000  inhabitants  9.2 11 


$158,755  $33,896  $215,885'' 

3,872  2,421  3.482 

50  40  83 

6,677  2,617  2,816 


All  Subsidized  Institutions 

Number  of  institutions 

Average  number  of  children  in  care 

2  Number 

3  Number  per  institution 

4  Number  per  100,000  inhabitants 


Expense  of  care  of  children  in  insti- 
tutions 

5     Amount  $4,596,110 

,      6     Amount  per  child  150 

7     Amount  per  100,000  inhabitants        50,431 


30,593 

6,074 

2,284 

6,139'' 

268 

107 

95 

76 

335.7 

255.5 

176.3 

80.1 

$929,893   $281,143   $816,644'' 
153      123      133 

39,111  21.704  10,654 


Public  funds 

8  Amount  $3,195,787 

9  Amount  per  institution  28,033 

10  Amount  per  child  104 

11  Amount  per  100,000  inhabitants         35, 066 


$366,825 
6,436 


$90,662  $285,921'' 

3.778  3.S30 

40  47 

6,999  3.730 


'  Including  private  institutions  only. 
'  Omitting  Avery  College. 


INTRODUCTION 

including  no  less  than  8i*  private  institutions  for  children,  as 
shown  in  Table  F,  in  addition  to  33  children's  aid  societies,  five 
humane  societies  and  one  society  for  the  prevention  of  cruelty  to 
children;  a  total  of  120  subsidized  institutions  and  agencies  for 
children. 

In  some  states  grants  of  public  funds  are  made  on  a  per  capita 
basis,  according  to  the  actual  service  rendered.  In  Pennsylvania 
grants  from  the  state  treasury  are  usually  made  in  the  form  of  a 
lump  sum  to  each  institution,  without  any  definite  and  uniform 
basis.  Grants  from  county  treasuries  are  made  in  many  cases 
according  to  the  actual  service  performed;  for  example,  appropria- 
tions are  made  to  reimburse  children's  aid  societies  for  actual 
amounts  paid  out  for  the  board  of  children. 

It  is  generally  agreed  that  the  plan  of  making  appropriations 
to  private  institutions  in  lump  sums  is  inequitable  and  liable  to 
abuse.  There  is  a  great  temptation  to  allow  such  grants  to  come 
under  partisan  political  influences,  and  it  is  practically  impossible 
so  to  adjust  them  as  to  make  a  fair  distribution. 

The  Subsidy  System  in  Four  States 

There  are  four  states  of  the  Union  in  which  the  plan  of  public 
grants  to  private  institutions  has  been  pursued  to  a  larger  extent 
than  in  any  other  states.  These  are  New  York,  California,  Mary- 
land, and  Pennsylvania.  There  is  submitted  herewith  a  state- 
ment (Table  F)  exhibiting  the  amount  of  such  appropriations  in 
these  four  states. 

We  have  arranged  them  in  the  above  order  because,  in  most 
cases,  the  ratios  are  in  this  order;  Pennsylvania  having  the  lowest 
ratio  both  of  numbers  and  expense.  We  have  separated  the  Catho- 
lic institutions  from  the  non-Catholic  institutions  for  the  reason 
that  there  is  a  marked  difference  in  the  scale  of  expenses  of  the 
Catholic  institutions,  owing  to  the  fact  that  they  enjoy  the  unpaid 
services  of  Sisters  and  Brothers. 

The  following  summary  of  the  statistics  in  Table  F  furnishes 
material  for  an  interesting  study  respecting  the  subsidy  system: 

*  Omitting  Avery  College. 

23 


CHILD    WELFARE    WORK    IN    PENNSYLVANIA 
SUMMARY  OF  TABLE  F 


New  York 


California     Maryland    Pennsylvania 


Children  per  institution 
All  institutions 
Catholic  institutions 
Non-Catholic  institutions 

Number  of  children  per  100,000 
inhabitants 
All  institutions 
Catholic  institutions 
Non-Catholic  institutions 

Expense  of  care  per  child 
All  institutions 
Catholic  institutions 
Non-Catholic  institutions 

Expense  of  care  per  100,000  inhabitants 
AH  institutions 
Catholic  institutions 
Non-Catholic  institutions 

Public  funds  per  institution 
All  institutions 
Catholic  institutions 
Non-Catholic  institutions 

Public  funds  per  child 
All  institutions 
Catholic  institutions 
Non-Catholic  institutions 

Public  funds  per  100,000  inhabitants 
All  institutions 
Catholic  institutions 
Non-Catholic  institutions 


268 

377 
ISS 

107 
183 
77 

95 
144 
60 

76 
186 
42 

336 
240 
96 

256 
123 
133 

176 

iir 
65 

80 
46 
34 

$150 
137 
183 

$153 
120 

184 

$123 
105 
154 

$133 
180 

150,431 
32,993 
17.438 

$39,111 
14.74s 
24.366 

$21,704 
11.665 
10.039 

$I0,6S4 
4.567 
6.087 

$28,033 
40,626 
14,990 

$6,436 
13.004 
3.872 

$3,778 
5.677 
2,421 

$3,530 
3.686 
3.482 

J 104 
108 
97 

$60 
71 
50 

$40 
39 
40 

$47 
20 
83 

$35,066 
25.855 
9.2ir 

$15,429 

6.677 

$6,999 
4.382 
2,617 

$3,730 

914 

2,816 

Although  the  number  of  subsidized  institutions  in  Pennsyl- 
vania (82*)  is  72  per  cent  of  that  in  New  York  (114),  the  average 
population  of  the  Pennsylvania  institutions  (76)  is  only  28  per  cent 
as  large  as  in  the  New  York  institutions  (268),  and  71  per  cent  as 
large  as  that  of  the  California  institutions  (107). 

The  number  of  children  in  subsidized  institutions  in  Penn- 
sylvania out  of  each  100,000  population  is  only  80,  one-fourth  as 
many  as  in  New  York  (336),  one-third  as  many  as  in  California 
(256),  and  one-half  as  many  as  in  Maryland  (176).  This  is  doubt- 
less due  to  the  efficiency  of  the  best  children's  aid  societies  in  Penn- 
sylvania and  the  wider  development  of  the  placing-out  method. 

The  expense  per  child  for  maintenance  is  ^133  in  Pennsyl- 
vania, as  compared  with  ^i  50  in  New  York,  |i  53  in  California,  and 
$123  in  Maryland.     It  is  important  to  note  that  while  the  average 

*  Including  Avery  College. 

24 


Ihe  Bed  Line 

1 

i:  Ii'  ||ii^^^ 

^^^^^^^^■■^1 

m 

K  ii^i^fr-*^^  ^ ' 

1 

^jr'^jr.'~f^j''j: '^^^^H^-t^            i. 

Salvaiion  Akmy   RiiSCL'E   HoMi-;,   Philadelphia.     (Sec  p.  206) 


m 

mt' 

"*"-»•                    ' 

f^ 

^r 

.1 

lntirmar\'  and  Alain  ISuildint 


(  )n  the  Playground 

\ 

"•^^rl 

J^^ 

w^^™^ 

r 

Kindergarten  Girls 
Shelter  for  Colored  Orphans,   Philadelphia.     (See  p.  207) 


INTRODUCTION 

rate  per  child  in  the  non-Catholic  institutions  in  Pennsylvania 
(^i8o)  is  nearly  equal  to  that  in  New  York  ($183)  and  that  in  Cali- 
fornia ($184),  though  it  is  greater  than  that  in  Maryland  ($154), 
the  average  rate  per  child  in  the  Catholic  institutions  of  Pennsyl- 
vania (S99)  is  much  less  than  in  New  York  ($137)  and  California 
($120),  and  about  the  same  as  in  Maryland  ($105).  Catholic  insti- 
tutions have  uniformly  a  lower  rate  of  maintenance  than  non- 
Catholic  institutions  because,  as  already  stated,  the  Sisters  and 
Brothers  serve  without  pay  and  thus  reduce  the  salary  cost;  but 
it  is  impossible  in  these  days  to  maintain  a  proper  standard  of 
institutional  care  for  children  for  Si 00  per  year. 

The  expense  of  maintaining  children  in  subsidized  institu- 
tions for  each  100,000  inhabitants  in  Pennsylvania  ($10,654)  is 
one-fifth  as  much  as  in  New  York  ($50,431),  one-fourth  as  much  as 
in  California  ($39,111),  and  one-half  as  much  as  in  Maryland 
($21,704). 

While  the  aggregate  amount  of  public  funds  appropriated 
to  children's  private  institutions  in  Pennsylvania  ($286,000)  seems 
large,  yet  the  amount  appropriated  to  many  of  the  institutions  is 
entirely  inadequate  as  appears  from  the  facts  stated  below.  The 
average  amount  appropriated  per  institution  is:  in  New  York 
$28,000,  in  California  $6,400,  in  Maryland  $3,800,  and  in  Penn- 
sylvania $3,500.  The  amount  appropriated  per  child  resident  in 
subsidized  institutions  is  as  follows:  in  New  York  $104;  in  Califor- 
nia $60;  in  Maryland  $40;  and  in  Pennsylvania  $47.  The  amount 
of  public  funds  appropriated  per  child  in  Catholic  and  non-Cath- 
olic institutions  is  as  follows: 

New  York  California  Maryland  Pennsylvania 

Catholic $108  $71  $39  $20 

Non-Catholic 97  50  40  83 

It  will  be  observed  that  while  the  rate  for  Catholic  and  non- 
Catholic  institutions  is  just  about  equal  in  Maryland,  and  the  rate 
for  non-Catholic  institutions  is  10  per  cent  less  in  New  York  and 
30  per  cent  less  in  California,  in  Pennsylvania  the  rate  for  Catholic 
institutions  is  only  24  per  cent  of  that  for  non-Catholic  institu- 
tions. The  result  is  that  many  of  the  Catholic  institutions  can 
not  and  do  not  provide  adequately  for  their  children  with  the  funds 

25 


CHILD    WELFARE    WORK    IN    PENNSYLVANIA 

at  their  command.  In  16  out  of  27  Catholic  orphanages  and  homes, 
the  annual  current  expense  is  reported  $80  or  less  per  child,  and  in 
II,  ^70  or  less  per  child.  Of  the  16  institutions  which  spent  |8o 
or  less  per  child,  seven  received  no  public  money  and  nine  averaged 
public  grants  of  $12.42  per  child! 


No  Governing  Principle  of  Distribution 

In  view  of  these  facts,  the  low  rate  of  public  subsidies  in  Penn- 
sylvania can  not  be  commended  as  an  economy.  If  public  appro- 
priations are  to  be  made  to  private  institutions,  they  should  be 
sufficient  to  permit  adequate  care. 

There  appears  to  be  no  governing  principle  in  the  distribu- 
tion of  public  funds  to  institutions.  We  find  that  in  13  subsidized 
institutions,  whose  average  population  was  25  or  under,  the  amount 
of  public  funds  per  child  and  the  percentage  of  current  expense 
taken  from  public  funds  were  as  follows: 


Public  funds  per 
child 


Per  cent  of  current 
expense  from 
public  funds 


Public  funds  per 

child 

{continued) 


Per  cent  of  current 
expense  from 
public  funds 
{continued) 


II47 

57 

I46 

32 

127 

48 

28 

27 

91 

45 

19 

7 

88 

39 

18 

12 

80 

38 

16 

12 

62 

37 

11 

18 

60 

52 

Average  13  institutions 

64 

35 

Out  of  38  child-caring  societies  which  receive  public  funds, 
there  are  14  whose  expenses  are  less  than  $500  each,  and  whose 
income  from  public  funds  is  less  than  $160  each.  These  14  socie- 
ties are  those  of  the  counties  of  Fayette,  Clearfield,  Washington, 
Elk,  Mercer,  Clarion,  Butler,  Greene,  Center,  Armstrong,  Potter, 
Jefferson,  Beaver,  and  Cameron. 

The  amounts  expended  for  current  expense  and  the  amounts 
of  public  funds  received  for  each  of  these  14  societies  are: 

26 


INTRODUCTION 


Current  expense 

Public  funds 

Current  expense 

Public  funds 

(continued) 

{conlinned) 

I476 

I121 

$167 

I128 

428 

102 

167 

127 

368 

S3 

142 

94 

271 

121 

lOS 

210 

lOI 

88 

202 

^F 

76 

21 

171 

89 

31 

48 

There  does  not  seem  to  be  any  sufficient  reason  why  pubHc 
funds  to  the  amount  of  $3.00  or  %2 1  should  be  appropriated  to  assist 
in  the  maintenance  of  a  society  in  any  one  of  these  rich  counties 
of  Western  Pennsylvania  whose  total  expenditures  are  $500  or 
less.  It  is  doubtless  true  that  the  public  appropriation  is  largely 
responsible  for  the  pitiful  amount  expended  by  these  societies. 
People  say:  "The  state  is  supporting  this  work,  therefore  it  is  not 
necessary  for  us  to  contribute."  These  14  societies  undertake  to 
place  children  in  family  homes,  and  some  of  them  pay  board  for 
children  in  family  homes.  As  we  have  already  stated,  placing 
children  in  family  homes  is  a  technical  and  expert  work,  which 
should  be  performed  only  by  people  of  special  training  and  effi- 
ciency. 

If  public  appropriations  are  to  be  continued  to  these  small 
societies  they  should  be  conditioned  upon  the  employment  of 
competent  paid  agents  and  the  maintenance  of  a  strict  and  faith- 
ful watch-care  over  children  placed  in  family  homes. 


Inadequate  State  Supervision 

The  law  requires  that  the  state  board  of  public  charities 
shall  make  a  recommendation  to  the  legislature  with  reference  to 
each  institution  which  applies  for  a  state  appropriation.  This 
recommendation  is  based,  first  upon  a  visit  and  report  by  an  agent 
of  the  board  and,  second,  upon  hearings  given  by  the  board  to 
representatives  of  the  several  institutions.  The  reports  of  visits 
average  about  50  words  each.     The  following  is  a  sample  report: 

"Children's  Home  October  12,  1911.     Capacity,  75. 

Inmates,  36  boys  and  14  girls.  Home  is  in  good  condition  throughout, 
large  comfortable  rooms  and  plenty  of  ventilation.  Beds  are  clean  and 
comfortable;  toilets  and  baths  clean,  although  some  are  old.     The  school 

27 


CHILD    WELFARE    WORK    IN    PENNSYLVANIA 

room  is  large  and  has  plenty  of  light.    The  children  are  all  well  and  appear 
to  be  happy." 

These  reports  are  necessarily  so  brief  that  it  is  impossible  to 
give  information  with  reference  to  the  quality  and  scope  of  school 
work,  the  competence  and  efficiency  of  employes,  budgets,  expense 
per  child,  rates  of  salaries,  dietaries,  and  other  important  items. 
The  board  has  only  two  visiting  agents  for  300  institutions. 

The  hearings  before  the  board  are  necessarily  hasty.  If  300 
institutions  were  given  ten  minutes  each,  that  would  amount  to 
3,000  minutes,  equal  to  50  hours,  amounting  to  eight  days  of  six 
hours  each.  The  writer  attended  two  such  hearings  where  he  saw 
representative  people  of  Philadelphia,  Harrisburg,  and  Pittsburgh 
awaiting  their  turn  for  an  hour  or  two  at  a  time.  When  at  last 
they  were  ushered  into  the  board  room  they  found  a  weary  com- 
mittee, drowned  in  a  mass  of  heterogeneous  information.  They 
were  exhorted  to  be  brief  and  were  limited  to  perhaps  ten  minutes 
in  which  to  set  forth  the  needs  and  deserts  of  an  important  insti- 
tution. Under  such  circumstances  it  was  impossible  to  present 
the  claims  of  an  institution  intelligently  and  it  was  impossible  for 
the  board  or  its  committee  to  receive  or  retain  a  clear  impression 
of  the  several  applicants.  The  writer  was  informed  that  some 
institutions  remained  unrepresented,  preferring  to  trust  their 
interests  to  the  intelligence  and  right  purpose  of  the  board  rather 
than  to  try  to  present  their  claims  under  such  difficult  circum- 
stances. 

Acting  upon  such  information  as  it  could  obtain,  the  state 
board  has  been  accustomed  to  make  its  recommendations  to  the 
legislature,  but  it  appears  that  these  recommendations  have  been 
lightly  regarded  because  the  legislative  committee  made  an  inquiry 
and  held  hearings  of  their  own.  It  became  necessary  for  the  rep- 
resentatives of  the  institutions  to  go  through  the  same  process  of 
long  waiting  and  hasty  presentation  before  a  weary  and  confused 
committee.  When  the  legislative  committee  had  agreed  upon  and 
passed  the  appropriation  bills,  that  was  not  the  end  of  the  matter. 
The  legislature  invariably  voted  appropriations  in  excess  of  the 
expected  revenues  of  the  state,  and  the  governor  was  obliged  to 
cut  down  the  appropriation  bills,  in  accordance  with  his  consti- 


INTRODUCTION 

tutional  privilege,  in  order  to  keep  them  within  Hmits.  It  again 
became  necessary  for  the  institutions  to  bring  to  bear  such  influ- 
ences as  they  could  command  upon  the  governor  to  protect  their 
appropriations,  it  was  simply  impossible  for  the  governor  to 
make  an  equitable  adjustment  of  this  matter.  He  had  to  do  the 
best  he  could  and  the  temptation  was  to  make  his  reductions  along 
the  lines  of  least  resistance,  so  that  modest  boards  of  trustees  who 
desired  to  avoid  unnecessary  trouble  and  annoyance  to  the  governor 
were  likely  to  suffer  for  their  forbearance. 

It  is  encouraging  to  note  that  the  appropriations  committee 
of  the  last  legislature  discouraged  the  plan  of  holding  hearings  and 
announced  their  intention  to  follow  the  advice  of  the  state  board 
of  public  charities.  The  rational  method  would  seem  to  be  to 
place  a  gross  sum  at  the  disposal  of  the  state  board  of  public 
charities  and  to  have  them  distribute  it  on  the  basis  of  actual  work 
performed,  taking  into  account  the  resources  of  the  institutions 
from  local  appropriations,  endowments,  donations,  and  pay  pa- 
tients, and  withholding  grants  from  institutions  which  do  not  main- 
tain adequate  standards  of  equipment  and  efficiency.  The  state 
board  of  public  charities  should  have  a  sufficient  force  of  com- 
petent investigators  to  enable  them  to  do  the  work  so  efficiently  as 
to  command  the  confidence  of  the  legislature  and  the  people. 

It  is  suggested  that  the  state  of  Pennsylvania  should  abandon 
the  plan  of  making  lump  appropriations  to  300  institutions  in  the 
present  haphazard  fashion  and,  if  the  subsidy  plan  is  to  be  con- 
tinued, should  adopt  the  plan  of  paying  for  actual  work  done,  on  a 
weekly  or  monthly  per  capita  basis,  as  is  done  by  the  counties  of 
Eastern  Pennsylvania  in  their  dealings  with  the  Pennsylvania  Chil- 
dren's Aid  Society.  If  this  plan  is  adopted,  however,  it  should  be 
carefully  safeguarded  in  order  to  avoid  the  difficulties  which  have 
been  experienced  in  the  management  of  subsidies  on  the  per  capita 
basis  in  the  state  of  New  York. 

The  safeguards  to  be  adopted  should  include  the  following: 

First,  a  careful  case  study  by  efficient  agents  to  determine 
whether  the  child  is  a  proper  subject  for  the  care  of  an  institution 
or  a  child-placing  society  and,  if  so,  whether  it  should  be  cared  for  as 
a  dependent,  a  neglected,  a  defective,  or  a  delinquent  child.     This 

29 


CHILD    WELFARE    WORK    IN    PENNSYLVANIA 

Study  should  determine  the  question  whether  the  child's  mother 
is  fit  and  competent  to  care  for  it  and,  if  so,  provision  should  be 
made,  if  necessary,  under  the  mothers'  pension  law. 

Second,  the  establishment  of  minimum  standards  of  insti- 
tutional care  and  treatment.  These  minimum  standards  should 
not  be  less  than  the  following:  That  the  institution  shall  be  certi- 
fied annually  by  the  state  board  of  public  charities  or  a  state 
board  of  children's  guardians  as  having  a  competent  board  of 
trustees;  an  efficient  superintendent;  an  adequate  and  properly 
paid  employe  staff;  sanitary,  comfortable,  and  suitable  buildings, 
not  overcrowded;  proper  school  facilities  and,  if  children  are  kept 
beyond  the  age  of  twelve  years,  proper  industrial  training;  and  such 
financial  resources  as  will  enable  the  trustees  to  preserve  these 
standards  when  once  established.  Public  appropriations  should 
be  strictly  forbidden  to  institutions  which  do  not  meet  these 
requirements. 

Third,  the  supervising  state  agency  should  be  authorized  to 
prescribe  or  provide  thorough  and  continued  supervision  over  chil- 
dren passing  from  the  care  of  institutions  and  societies  until  they 
are  safely  established  in  life.  The  state  board  of  public  charities 
or  board  of  children's  guardians  should  have  liberal  appropria- 
tions to  enable  them  to  perform  these  duties. 

Fourth,  corresponding  standards  of  efficiency  should  be  estab- 
lished with  reference  to  child-placing  societies  receiving  public 
funds,  and  similar  precautions  should  be  taken  to  insure  the  wel- 
fare and  happiness  of  children  placed  in  family  homes  by  such 
societies. 

It  would  be  useless  to  undertake  such  work  as  has  been  rec- 
ommended without  an  adequate  force.  Instead  of  the  present 
staff  of  two  visitors  for  the  entire  state,  the  state  board  of  public 
charities  would  require  at  least  20  visitors.  The  state  of  Massa- 
chusetts, with  less  than  half  the  population  of  Pennsylvania,  em- 
ploys 40  children's  visitors,  besides  the  necessary  clerical  force. 
But  such  a  plan  would,  in  the  end,  save  the  state  far  more  than  its 
cost  by  relieving  the  institutions  of  the  care  of  children  who  could 
be  suitably  cared  for  by  parents,  relatives,  or  foster-parents. 

On  the  other  hand,  the  expense  of  the  system  would  have  to 
30 


INTRODUCTION 

be  increased  by  such  a  sum  as  might  be  found  necessary  in  order 
to  insure  the  proper  care  and  maintenance  of  children,  taking  into 
account  the  increased  cost  of  hving. 

A  State  Program  of  Child  Welfare 

This  study  of  the  child  welfare  work  of  Pennsylvania  reveals 
the  fact  that  no  comprehensive  or  logical  plan  has  ever  been  at- 
tempted. The  question  whether  the  need  of  any  particular  class 
of  children  shall  be  met  has  been  determined  by  the  individual 
caprice  of  some  testator,  or  by  the  generous  impulse  of  some  group 
of  women,  or  by  the  personal  initiative  of  some  legislator.  Gen- 
erous and  adequate  provision  has  been  made  for  the  needs  of  some 
classes  of  children,  while  others  equally  deserving  or  equally  in 
need  have  been  neglected. 

The  provisions  for  certain  classes  of  children  are  abundant 
in  some  sections  of  the  state,  while  in  other  sections  they  are  lack- 
ing, and  the  resources  and  efficiency  of  child-placing  societies  are 
much  greater  in  some  parts  of  the  state  than  in  others.  There  is 
excellent  provision  for  delinquent  boys  and  girls  in  institutions, 
but  entirely  inadequate  provision  for  their  watch-care  and  guidance 
after  dismissal  from  the  institutions.  Some  counties  provide  well 
organized  juvenile  courts  with  competent  judges  and  probation 
officers,  while  others  absolutely  ignore  the  juvenile  court  law  and 
leave  their  children  to  be  dealt  with  by  police  magistrates,  without 
any  probation  officers. 

Millions  of  dollars  have  been  provided  for  the  care  of  normal 
orphan  girls,  which  can  not  be  used  because  the  girls  of  that  class 
are  so  few.  At  the  same  time,  thousands  of  defective  girls  are 
allowed  to  run  at  large  and  to  reproduce  their  kind  for  lack  of  suffi- 
cient institutional  provision. 

A  State  Problem 

The  only  way  in  which  the  problem  can  be  adequately  solved 
is  from  the  viewpoint  of  the  state  at  large.  It  is  impossible  for 
municipalities  to  deal  adequately  with  these  different  classes  of 
children  except  in  the  most  populous  and  wealthy  communities, 

4  31 


CHILD    WELFARE    WORK    IN    PENNSYLVANIA 

and  even  these  communities  are  dependent  upon  the  rural  districts 
to  provide  family  homes  for  their  dependent  and  delinquent  chil- 
dren after  they  are  sent  out  from  institutions.  On  the  other  hand, 
the  rural  districts  need  the  benefit  of  state  and  private  institutions 
for  special  classes,  like  Girard  College  for  orphan  boys,  the  Elwyn 
School  for  Feeble-Minded,  the  Widener  Memorial  School  for 
Crippled  Children,  and  the  Glen  Mills  Schools  for  delinquents. 
They  need  also  such  co-operation  with  expert  agencies  as  has  been 
established  by  local  children's  aid  societies  and  county  officials  in 
Eastern  Pennsylvania  with  the  Children's  Aid  Society  of  Penn- 
sylvania. 

A  Tentative  Outline  of  a  State  Program 

A.  Secure  the  co-operation  of  the  most  efficient  and  patriotic 
organizations  which  deal  with  child  welfare:  for  example,  the  state 
board  of  Public  Charities;  the  Public  Charities  Association  of  Penn- 
sylvania; the  best  organized  children's  aid  societies;  societies  for  the 
prevention  of  cruelty  to  children;  women's  clubs;  juvenile  courts; 
child  labor  committees;  mothers'  clubs;  public  and  private  insti- 
tutions for  dependent,  delinquent,  and  defective  children;  also  the 
attorney  general  and  state  and  city  bar  associations. 

B.  Call  a  session  of  the  State  Conference  of  Charities  to 
consider  the  question  of  a  children's  program.  Let  this  conference 
create  a  committee  representing  each  of  the  important  child-help- 
ing institutions  of  the  state,  for  the  purpose  of  outlining  a  compre- 
hensive state  program  for  child  welfare.  The  child  welfare  program 
should  contemplate  a  plan  to  cover  a  series  of  years  probably 
extending  from  ten  to  fifteen  years,  with  the  final  aim  to  cover  the 
entire  field. 

C.  Secure  legislation  for  the  creation  of  a  state  commission 
to  prepare  a  children's  code,  to  embody  all  legislation  affecting 
dependent,  delinquent,  and  defective  children;  the  children's  code 
to  cover: 

1.  The  supervision  of  all  public  and  private  child-helping 
agencies  by  the  state  board  of  public  charities. 

2.  The  creation  of  a  department  of  the  state  board  of  public 

32 


INTRODUCTION 

charities,  a  state  board  of  children's  guardians,  or  other  state 
agency  for  the  care  and  oversight  of  all  children  who  are  public 
wards. 

3.  The  juvenile  court  law. 

4.  Legislation  providing  for  the  physical,  medical,  and  psy- 
chological examination  of  children;  also  a  careful  case  study  of  all 
children  under  consideration  for  court  action  or  for  care  by  chil- 
dren's societies  or  institutions. 

3.  Legislation  with  reference  to  the  creation  and  government 
of  orphanages,  children's  homes,  children's  aid  societies,  and  other 
organizations  dealing  with  orphans  and  dependent  children,  and 
the  care  and  guardianship  of  such  children. 

6.  Legislation  with  reference  to  the  organization  of  societies 
for  the  prevention  of  cruelty  to  children  and  for  the  care  and  pro- 
tection of  neglected  children. 

7.  Legislation  regulating  the  organization  and  management 
of  institutions  for  delinquent  children  and  for  the  parole  and 
watch-care  of  such  children. 

8.  Legislation  defining  feeble-mindedness  and  providing  for 
the  adjudication  of  the  question  of  feeble-mindedness;  the  segre- 
gation of  feeble-minded  children  and  adults;  the  creation  and  regu- 
lation of  institutions  for  their  care. 

9.  Legislation  providing  for  the  care  and  segregation  of 
epileptic  children. 

10.  Legislation  providing  for  the  surgical  treatment  of  indi- 
gent crippled  children,  and  for  the  organization  and  control  of 
public  and  private  institutions  for  the  treatment  and  care  of  crip- 
pled children. 

1 1 .  Legislation  providing  for  the  care  and  treatment  of  incur- 
able children. 

Pennsylvania  has  already,  abundant  resources  in  buildings, 
endowments,  societies,  and  a  multitude  of  interested  and  devoted 
people  who  are  giving  their  time  and  their  money  for  the  benefit 
of  the  children  of  the  state.  What  is  needed  is  to  coordinate  these 
resources  and  to  bring  them  into  effective  co-operation. 

The  child-helping  organizations  of  Pennsylvania  need  to 
bring  their  methods  into  accord  with  the  spirit  of  the  twentieth 

33 


CHILD    WELFARE    WORK    IN    PENNSYLVANIA 

century  just  as  her  great  manufacturing  institutions  have  done  in 
the  commercial  world.  The  desirability  of  this  is  clearly  recognized 
by  many  thoughtful  citizens  of  the  Commonwealth,  and  there  is 
every  reason  to  believe  that  such  coordination  and  co-operation 
will  be  largely  accomplished  before  the  close  of  the  present 
decade. 


34 


CHAPTER   I 
INCEPTION  AND  SCOPE  OF  THE  STUDY 

FOR  several  years  the  Russell  Sage  Foundation  has  been 
gathering  statistics  and  information  concerning  the  child- 
helping  agencies  and  institutions  of  Pennsylvania.  After 
the  study  had  made  considerable  progress,  leading  social  work- 
ers of  the  state,  including  the  officers  and  a  committee  of  the 
Pennsylvania  State  Conference  of  Charities, — hereafter  mentioned 
as  our  Pennsylvania  associates, — asked  that  its  original  scope 
be  enlarged  to  include  more  details  as  to  numbers  of  children 
served,  institutional  property  values,  current  cost  of  work,  and 
forms  of  administration.  To  make  this  more  comprehensive  in- 
quiry within  a  limited  time,  and  to  obtain  uniform  statistics,  re- 
quired the  services  of  a  number  of  trained  investigators,  personal 
visits  to  the  institutions,  and  the  use  of  formal  schedules. 

To  cover  the  cost  of  such  a  study  and  to  secure  its  comple- 
tion in  a  reasonable  time,  two  Philadelphia  organizations,  the 
Children's  Aid  Society  of  Pennsylvania  and  the  Seybert  Institu- 
tion for  Poor  Boys  and  Girls,  offered  to  bear  a  part  of  the  expense. 
Under  these  conditions  the  Department  of  Child-Helping  of  the 
Russell  Sage  Foundation  consented  to  undertake  the  task,  it 
assigned  to  the  work  two  of  its  own  agents;  the  Pennsylvania 
associates  also  provided  two  visitors  to  work  under  the  direction 
of  the  special  agent  of  the  Department. 

The  field  work  of  the  co-operative  study  began  June  i, 
1912.  After  the  visitation  of  institutions  was  completed  the 
Department  continued  in  frequent  communicatiom  with  many  of 
them  in  all  parts  of  the  state.  The  work  of  classifying,  tabulating, 
digesting,  and  interpreting  the  material  gathered  has  gone  forward 
as  rapidly  as  possible.  The  task  of  arranging  and  formulating  a 
general  report  in  a  study  of  this  kind  takes  even  more  time  than 
the  field  work,  but  the  results  are  now  available. 

The  inquiry  covered  many  details  and  characteristics  of  the 
35 


CHILD   WELFARE   WORK    IN    PENNSYLVANIA 

child-caring  work  of  the  state,  among  which  the  following  are 
most  important : 

SCOPE  OF  THE   INQUIRY 

1.  The  number,  capacity,  type,  and  quaHty  of  the  agencies 
and  institutions. 

2.  The  amounts  invested  in  institutional  property,  and  the 
cost  of  the  child-helping  work,  both  to  private  organizations  and 
to  the  public  treasuries. 

3.  The  number,  kinds,  and  classes  of  children  handled, 
whether  placed  out  in  homes  or  cared  for  in  institutions. 

4.  The  reasons  given  for  the  dependency  or  the  delinquency 
of  the  children  requiring  agency  aid  or  institutional  care. 

5.  Carefully  compiled  statistical  tables  exhibiting  in  classi- 
fied form  the  work  of  these  agencies  and  institutions. 

THE  SCHEDULE 

The  arrangement  of  a  satisfactory  schedule  was  ex- 
ceedingly difficult.  From  previous  experience  the  Department  of 
Child-Helping  desired  to  limit  the  points  to  be  considered  to  the 
minimum.  On  the  other  hand,  the  Pennsylvania  associates  wanted 
information  on  a  multitude  of  matters,  including  a  great  many 
interesting  details  of  work  and  management.  The  resultant 
schedule  was  a  compromise,  omitting  many  things  the  Pennsyl- 
vania associates  desired  included,  and  including  a  number  of  points 
the  Department  would  have  omitted. 

As  a  sample  of  co-operative  questionnaire  building,  and  as  a 
suggestion  of  details  to  any  who  are  preparing  for  similar  studies, 
as  well  as  to  show  the  basis  on  which  the  material  used  in  this  study 
was  gathered,  the  schedule  will  be  of  interest  to  social  workers. 
Its  reproduction  here  gives  the  source  from  which  the  tables  and 
deductions  presented  were  derived. 

In  form,  the  schedule  was  a  four-page  folder  of  letter  size, 
a  sheet  11x17  inches,  folded  once.  The  reduced  size  here  printed 
may  give  the  impression  that  the  space  was  greatly  crowded,  but 
with  the  above  dimensions  the  print  was  clear  and  the  writing 
space  ample. 

36 


RUSSELL     SAGE     FOUNDATION 

John  M.  Glenn,  General  Director,   105  E.  22nd  St..  New  York  City. 
DEPARTMENT    OF    CHILD-HELPING 


Hastings  H.  Hart,  Director. 


W.  H.  Slingerland,  Special  Agent; 


STUDY   OF    PENNSYLVANIA   AGENCIES    AND    INSTITUTIONS 
FOR  THE  CARE  OF  DEPENDENT,  DELINQUENT  AND  DEFECTIVE  CHILDREN 


PART  I— GENERAL  INFORMATION. 


1.  Corporate  name 

Popular   name,  if  different- 

2.  Location  .   Town 

Street  address 

3.  Year   founded 


-County- 


-Date  of  incorporation- 


4.  State,  county,  or  private  mstitution _ 

5.  Under  control  of  what  church,  order,  society,  or  other  body? 


6.    Inventory  of  property; 

(1)  Value  of  lands  composing  site  of  plant — 

(2)  Value  of  buildings,  furnishings,  etc -_ 


(3)     Amount  of  invested  funds,  endowment  and  lands  not  inoiuded  above- 
Total  value  of  property . 


Give  source  of  information,  and  basis  of  estimate- 


7     Is  institution  built  and  conducted  on  "Cottage"  plan? 

(1)  If  so,  what  type,  "A"  or  "B"?  (See  note  12,  Page  4)_ 

(2)  Capacity  of  each  cottage   (children) _ 

(3)  Total  capacity  of  institution.  (See  note  4,  Page  4)  _ 

(4)  No.  of  single  beds 


.No.  of  cottages. 


.No.  of  double  beds 


Note:  List  as  "cottages"  only  buildings  in  which  children  sleep. 


8.    Is  institution  built  and  conducted  on  "Congregate"  plan? 

(1)  If  so,  what  type,  "A"  or  "B"?  (See  note  12,  Page  4). 

(2)  Capacity  of  each  building  (children) 


.Xo.  of   buildings 


(3)  Total  capacity  of  institution.  (See  note  4,  Page  4). 

(4)  No.  of  single  beds 


List  as  "buildings"'only  those 


.No.  of  double  beds- 


ifhich  children  sleep. 


9.    Name  important  buildings  not  included  above;  give  type  and  material  of  buildings;  and  condii 
suitability. 


to  repair,  order,  and 


Facsimile  of  Schedule  Used  in  Co-operative  Study,  p.   i 


PART  II— FINANCIAL  STATISTICS. 


10.    Receipts  for 


(1)  From  state  treasury 

(2)  From  county  treasury 

(3)  From  municipal  treasury 

(4)  From  invested  funds,  endowment  and  rents. 

(5)  From  general  donations 


(6)  From  relatives  toward  care  of  inmates 

(7)  From  miscellaneous  sources . 


Total  income  for  year- 


U.    Expenditures  for  year  ending.. 


(1)  For  salaries   and   wages. 

(2)  For  food    supplies-. _ 

(3)  For  fuel  and  light 


(4)  For  school  expenses . $_ 

(5)  For  miscellaneous   expenses — . $- 

(6)  For  buildings  and_  improvements $_ 


(7)     For  investment  or  permanent  endowment- 
Total  expenditures  for  year 


PART  III— ACTIVE.  WORKERS. 


12.    Executive  officer — Title 

Name 


13.  Number  of  paid  employes Male Female Total 

Number  of  unpaid  employes Male - Female Total- — 

Total  number  of  employes Male —Female Total _ 

PART  IV— BENEFICIARIES,  ADMISSION  AND  DISCHARGE. 

14.  Classification  of  beneficiaries: 

(1)  Dependent,  Delinquent  or  Defective? _ 

(2)  Race  or  color  limitations? 

(3)  Sex  and  age  limits: 

Ages  Received  Ages  Dismissed 

Boys __ ___ 

Girls 


(4)     Other  requirements  —  (Must  they  be  orphan,  destitute,  under 


15.    Reception  of  children; 

(1)     How  are  applications  for  admission  made?- 


(2)     What   investigation   made  to  ascertain  real  need,  proper   guardian,  family   history,  etc.? 


(3) 

By 

whose 

authority  passed 

upon. 

Superintendent, 

Matron, 

Committee  of  Board, 

etc.? 

Facsimile  of  Schedule  Used  in  Co-oper.'^tive  Study,  p.  2 


16.    Dismissal  from  institution: 

(1)  Who  authorizes  dismissal  of  inmates?- 

(2)  What  after  supervision  given? 


17     Placing  out  work: 

(1)  Are  children  placed  out  in  families? 

(a)  With  board  paid? — 

(2)  What   supervision   given    placed-out   children?- 


-(b)  In  free  homes? 


PART  V— STATISTICS  OF  CHILDREN. 

Children  cared  for  during  year  ending ■ 


(1)  In  institution  at  beginning  of  year— 

(2)  Children   received   first   time 

(3)  Wards  of  previous  years  returned — 

(4)  Total   different   children   in   year 

(Counting  no  child  more  than  once) 

19.    Disposition  of  children  cared  for  during  year 

(1)  Placed  in  family  homes 

(2)  Returned  to  kin _— 

(3)  Died  at  institution  or  in  temporary  c 


outside.. 

(4)  Transferred  to  other  institutions  permanently 

(5)  Otherwise  disposed  of 

(6)  Remaining  in  institution 

(7)  Total  different  children,  i 


t  close  of  year- 
in  "18  (4)" 


Children  in  institution  at  close  of  year  classified  by  reasons, 
given  for  dependency; 


Death  of  one  or  both  parents 

Wilful  desertion  or  abandonment 

Cruelty,  neglect,  or  other  mistreatment- 


Homeless  or  destitute  because  of  illness,  poverty,' 
or  other  parental  disability : 


(5)  Total  in  institution  close  of  year  (same  as  19 — 6) 
How  many  children  cared  for  during  year  were  illegitimate 
Estimated  average  daily  census  of  children  in  institution 
during  the  year— . 


23.    Sources  from  which  wards  in  institution  at  close  of  year  were  received,  and  relational  condition  : 


Both 

is. 

Both 

Found- 

lings 

Total 

Rplativpi;   and    fn>nH« 

Other    npenrif? 

Total   f.;amp  a=   \<)—f,\ 

24.  Total  number  of  children  outside  of  the  institution  but  still  under  its  control  or  supervision  at  close  of  year. 

25.  Does  institution  publish  an  annual  report?- 


26.    What  records  are  kept  showing  sources  from  which  children  are  received,  reasons  for  dependency,  family  history,  health, 
physique,  etc. 


Facsimile  of  Schedule  Used  in  Co-operative  Study,  p. 


STUDY  OF  CHILD-HELPING  INSTITUTIONS. 
Suggestions  and   Definitions. 


1.  Make  every  word  and  figure  legible.     Careless  work  is  worthless. 

2.  Statistics  are  to  be  secured  for  the  latest  possible  full  year,  fiscal  or  calendar.  Statistics  for  finances  and  population 
should  cover  the  same  time. 

3.  Secure  or  make  an  estimate  of  property  value,  if  none  has  been  officially  made  by  the  institution.  Advise  with  busi- 
ness n-.en  if  necessary.  The  land  valuation  should  show  number  of  acres  or  measurement  in  feet.  Indicate  whether  the 
valuation  is  original  cost  or  present'  estimated  value.  Building  values  should  allow  a  reasonable  amount  for  depreciation. 
They  should  indicate  the  present  value  of  the  buildings  for  the  purpose  of  the  institution. 

4.  The  capacity  of  an  institution  is  the  number  of  children  for  whom  sleeping  accommodations  are  provided. 

5.  Children  must  appear  in  only  one  group  under  each  question,  to  prevent  double  counting. 

6.  If  statistical  records  are  incomplete,  obtain  close  estimate  of  class  items,  under  questions  IS  to  24.  from  institution 
officers.     If  estimated,  so  state. 

7.  No  children  are  to  be  counted  "placed,"  either  on  pay  board  or  in  free  homes,  who  remain  in  these  homes  a  shorter 
period  than  a  week. 

8.  To  place  with  "Kin"  is  to  place  with  relatives  of  the  first  and  second  degrees— parents,  grandparents,  brothers  or 
sisters. 

9.  To  "place  out  in  families"  is  to  place  dependent  or  delinquent  children  in  the  families  of  others  than  relatives  within 
the  second  degree,  for  the  purpose  of  providing  homes  for  such  children. 

10.  An  mstitution  is  said  to  do  "placing-out  work"  when  it  selects  homes,  or  secures  positions  including  homes,  for  any 
number  of  its  minor  wards,  and  by  authority  of  its  guardianship  officially  arranges  for  their  location  in  such  homes,  either 
as  paying  boarders,  free  inmates,  or  paid  workers. 

11.  Obtain  when  possible  a  printed  report  of  the  institution,  and  a  set  of  its  blank  forms,  to  supplement  this  study,  and 
for  the  files  at  the  Foundation  headquarters. 

12.  The  type  of  the  institution  is  to  be  ascertained.  Study  details  carefully,  so  as  to  properly  answer  questions  7  and  8. 
The  "Cottage"  type  is  indicated  by  limited  groups  of  children,  in  small  buildings,  and  care  and  spirit  in  imitation  of  ordinary 
family  life.  The  "Congregate"  type  is  indicated  generally  by  large  buildings,  and  care  of  children  en  masse  with  little 
individual  treatment.    To  guide  the  visitor  the  following  are  accepted  as  satisfactory  tentative  definitions  for  use  in  this  study 

I— COTTAGE  INSTITUTIONS. 

Class  A.  An  institution  composed  of  one  or  more  cottages,  each  containing  no  more  children  than  can  be  given 
personal  and  individual  care,  permeated  with  a  real  family  spirit,  the  number  not  to  exceed  30  in  any  one  cottage,  and  in 
which  each  cottage  is  a  complete  domestic  unit,  with  its  own  kitchen  and  dining-room. 

Class  B.  An  institution  composed  of  several  cottages,  each  containing  no  more  children  than  can  be  given  personal 
and  individual  care,  permeated  with  a  real  family  spirit,  the  number  not  to  exceed  50  in  any  one  cottage,  where  the  cooking 
is  done  in  a  general  kitchen,  and  the  meals  served  either  in  cottage  dining-rooms  or  in  a  general  congregate  dining-room. 

II— CONGREGATE  INSTITUTIONS. 

Class  A.  An  institution  in  which  children  are  gathered  in  one  or  more  large  buildings,  the  minimum  average  in 
care  exceeding  50  children,  and  in  which  the  care  is  en  masse  rather  than  individual. 

Class  B.  An  institution  having  usually  only  one  main  building,  the  average  in  care  not  exceeding  50  children,  the 
physical  equipment,  spirit  and  methods  adapted  to  mass  care,  and  the  treatment  of  the  children  collective  rather  than  indi-; 
vidual. 

13.  Carefully  note  and  write  up  in  "story"  form  the  general  characteristics  of  the  institution.  Cover  as  many  as  possible 
of  these  items:  Description  of  location  and  building;  interior  conditions;  fire  escapes;  size  and  ventilation  of  dormitories;  kindsj 
of  beds  and  bedding;  sort  of  dining-room,  seats,  tables,  dishes  and  napery;  apparent  amount  and  quality  of  food;  cleanliness! 
and  sanitation;  clothing  of  children:  spirit  manifested,  whether  kindly  or  rigorous,  homelike  or  institutional;  and  impression 
as  to  efforts  to  overcome  institutionalism  and  develop  initiative  in  the  children. 

Facsimile  of  Schedule  Used  in  Co-operative  Study,  p.  4 


INCEPTION    AND    SCOPE    OF    THE    STUDY 

THE    FIELD   WORK 

The  ideal  study  implies  the  personal  visiting  of  agencies  and 
institutions  by  a  highly  trained  social  worker,  backed  by  ade- 
quate authority  and  able  to  use  ample  time.  Even  under  such  con- 
ditions the  personal  equation,  added  to  certain  physical  limitations, 
will  lead  to  some  degree  of  imperfection. 

This  co-operative  study  necessarily  varied  somewhat  from 
the  above  ideal.  It  was  not  made  by  a  single  agent  but  by  a 
corps  of  visitors;  most  of  whom  possessed  only  general  experience 
in  social  work,  and  could  be  given  only  a  brief  course  of  instruction 
in  methods  of  inquiry.  The  personal  equation  was  therefore 
manifest  in  some  of  the  reports. 

There  was  behind  this  study  no  civil  authority.  For  its 
success  it  depended  entirely  upon  the  ability  of  its  agents  to  con- 
vince the  officers  of  institutions  and  others  related  to  child-caring 
work  that  it  was  an  honest  effort  to  advance  the  common  welfare. 
The  almost  universally  favorable  response  to  their  requests  for 
information  proves  that  it  was  so  accepted  throughout  the 
state.  Yet  it  would  have  been  possible  to  secure  fuller  and  more 
accurate  details  f  the  visitors  had  been  backed  by  adequate 
authority. 

The  time  at  the  disposal  of  the  visitors  was  limited.  The 
plan  of  the  field  work  of  the  study,  based  upon  the  available  time, 
workers,  and  finances,  required  each  visitor  to  average  about  four 
completed  reports  each  week.  Often  the  visit  to  the  institution, 
the  interview  with  the  superintendent,  and  the  effort  to  fill  the 
schedule,  were  but  the  beginning.  The  visitor  then  had  to  seek 
from  three  to  five  additional  interviews  with  board  members  and 
others,  variously  located,  to  obtain  the  remainder  of  the  desired 
data.  Hurried  calls,  hesitating  and  sometimes  unwilling  re- 
sponses, and  the  natural  effort  of  institution  officials  to  set  the 
best  foot  foremost,  account  for  some  of  the  imperfections  always 
found  in  a  study  of  this  kind. 

Notwithstanding  the  above  named  elements  of  imperfec- 
tion, it  is  beheved  that  the  reports  are  true  to  the  existing  facts 
and  conditions.  Beyond  question  the  records  and  descriptions 
give  a  very  fair  picture  of  the  institutions,  and  reasonably  accurate 

41 


CHILD   WELFARE   WORK      IN    PENNSYLVANIA 

Statistics.     The  tabulations  and  deductions  based  upon  them  de- 
serve close  and  systematic  study. 

GROUPING   AND  COMBINING 

The  study  necessarily  led  to  a  separation  of  the  various 
agencies  and  institutions  into  groups  for  convenience  of  comparison 
and  the  combination  of  statistics.  The  divisions  made,  and  the  ar- 
rangement of  institutions  within  them,  are  not  exhaustive  nor  al- 
ways satisfactory;  but  they  seem  fairly  well  adapted  to  bring  out 
the  facts  under  consideration,  which  is  the  essential  thing  in  the 
study. 

The  limited  division  of  the  institutions  into  groups,  and  the 
classified  relation  of  some  not  strictly  coordinate,  were  forced  by 
necessary  publication  restrictions  in  regard  to  the  number  and  size 
of  statistical  tables,  it  was  advisable  to  combine  as  closely  and  to 
arrange  as  uniformly  as  possible.  This  necessitated  some  unsatis- 
factory grouping.  For  instance,  several  institutions  chiefly  de- 
voted to  vocational  training  have  been  listed  among  the  orphan- 
ages and  children's  homes.  They  give  continuous  care  to  needy 
young  people,  but  add  to  it  agricultural,  mechanical,  or  other 
special  training.  To  call  them  orphanages  or  children's  homes  is 
neither  exact  nor  sufficient  fully  to  express  their  work,  yet  to 
group  them  and  other  institutions  with  specialties  by  themselves 
would  have  multiplied  the  sets  of  tables  far  beyond  what  was 
practicable.  The  present  arrangement  is  the  result  of  many  trials 
and  months  of  study,  and  it  is  believed  that  it  will  be  found  clear 
and  serviceable. 

For  the  purposes  of  this  study  the  words  "agency"  and 
"institution"  have  been  used  in  a  definite  and  restricted  sense. 
Those  child-caring  organizations  whose  main  function  is  to  ar- 
range for  needy  and  dependent  children  and  place  them  in  family 
homes,  or  in  orphanages,  hospitals,  or  reformatories,  are  classified 
as  agencies.  Those  organizations  whose  principal  function  is  to 
provide  direct  and  more  or  less  permanent  board  and  care  for  the 
various  classes  of  needy  and  dependent  children,  and  which  usually 
possess  considerable  plant  and  equipment  for  the  purpose,  are 
classified  as  institutions. 

The  terms  "public  funds"  and  "private  funds"  also  need 
42 


INCEPTION    AND    SCOPE    OF    THE    STUDY 

explanation.  They  are  used  in  special  definite  relations  all 
through  the  various  chapters  and  in  the  statistical  tables.  Public 
funds  are  those  derived  from  taxation.  It  was  not  found  practi- 
cable to  separate  those  administered  or  distributed  by  the  state, 
count)-,  and  municipal  authorities.  Therefore,  in  the  statistics 
of  some  institutions  the  public  funds  may  be  an  aggregate  of  the 
amounts  received  from  all  three.  Private  funds  are  those  derived 
from  sources  other  than  taxation.  They  include  special  gifts, 
income  from  endowments,  general  donations,  and  receipts  from 
entertainments,  tag  days,  and  other  miscellaneous  money-gather- 
ing activities. 

For  the  purposes  of  this  study,  the  term  "'  child  welfare  work," 
used  in  the  title  of  this  book  and  frequently  in  its  various  chapters, 
is  limited  in  its  application  to  work  done  for  children  classed  as 
dependents,  delinquents,  or  defectives,  whose  welfare  is  sought  by 
the  child-caring  agencies  and  institutions. 


43 


CHAPTER   II 
KINDS  AND  NUMBERS  OF   INSTITUTIONS 

THE  type  of  management  was  made  the  index  for  a  general 
division  into  public  and  private  institutions.  All  of  those 
under  the  direct  support  and  management  of  city,  county, 
or  state  officials,  are  counted  as  public;  and  all  in  which  the  prop- 
erty is  held,  the  policy  controlled,  and  the  funds  administered  by 
privately  created  boards  of  managers,  are  listed  as  private  insti- 
tutions. 

The  groups  dealt  with  in  this  study  are  believed  to  include 
all  of  the  public  or  private  organizations  and  institutions  now  estab- 
lished within  the  state,  devoted  to  the  care  of  defective,  delinquent, 
or  dependent  children.  There  are  a  number  of  other  institutions, 
some  public  and  some  private,  which  incidentally  care  for  some 
children  of  one  or  the  other  of  these  classes;  but  their  principal 
work  is  remedial  or  educational  instead  of  charitable  or  reformatory, 
and  they  are  not  included  within  the  limits  of  this  study. 

The  public  institutions  are  subdivided  into 

(i)  Those  giving  direct  and  more  or  less  permanent  care  with 
special  schooling  and  training,  and 

(2)  Those  in  which  the  care  of  children  is  either  incidental 
or  of  brief  duration. 

The  institutions  of  the  first  division  present  quite  full  and 
accurate  statistics;  the  second,  from  the  nature  of  the  case,  give 
only  limited  and  incomplete  information. 

As  a  matter  of  convenience  in  arrangement,  all  of  the  insti- 
tutions under  public  management  and  the  private  institutions  for 
special  classes  are  assembled  in  one  section  of  the  report,  entitled 
Part  Two.     In  this  will  be  found  six  groups  and  a  summary. 

Of  the  almshouses  t  may  be  said  that  children  are  cared  for 
in  them  only  under  protest  and  for  as  brief  a  time  as  possible.  The 
state  law  forbids  the  retention  of  normal  children,  except  infants, 
in  almshouses  for  more  than  sixty  days;  but  the  law  s  frequently 

44 


KINDS   AND   NUMBERS   OF    INSTITUTIONS 

violated.  The  attention  given  to  almshouses  in  this  study  was  not 
to  ascertain  the  general  condition  of  the  institutions,  but  to  learn 
whether  or  not  children  were  there  cared  for  and,  if  among  the 
inmates,  the  quality  of  service  rendered  to  such  children.  The  80 
almshouses  are  entirely  separated  from  the  regular  institutions  for 
child-care,  a  chapter  and  a  table  being  devoted  to  them  at  the 
beginning  of  Part  Two. 

Detention  homes  are  understood  to  be  intended  only  for  the 
temporary  care  of  children  under  observation  or  expecting  action 
by  the  juvenile  court,  and  such  children  are  there  cared  for  only 
until  their  cases  can  be  properly  adjudicated.  There  are  nine 
detention  homes  listed  and  tabulated.  This  small  number  is  be- 
lieved to  include  all  existing  within  the  state  at  the  time  of  the 
study,  although  some  counties  have  equivalent  service  through 
arrangements  for  the  board  of  children  by  private  families  or  insti- 
tutions. Detention  homes  are  counted  among  the  regular  child- 
caring  institutions,  although  the  average  period  of  care  is  quite 
limited.  They  have  a  chapter  and  a  table  immediately  after  the 
almshouses. 

For  convenience  in  study  and  for  ready  reference,  the  state 
institution  for  soldiers'  orphans  and  the  four  county  children's 
homes,  which  are  all  mainly  devoted  to  the  care  of  dependent 
children  but  also  care  for  a  few  defectives,  are  grouped  together  in 
a  single  chapter  and  table.  This  gives  a  group  of  five  public  insti- 
tutions under  the  title  State  and  County  Homes  for  Depen- 
dents. 

For  similar  reasons  all  of  the  nstitutions  for  the  care  of  delin- 
quents are  assembled  for  description  and  tabulation.  The  two 
under  public  management  are  joined  to  the  nine  under  private 
management  in  one  chapter  and  table,  to  give  a  connected  view  of 
this  class  of  work. 

Likewise  the  two  public  institutions  for  the  care  of  defectives 
are  grouped  with  the  two  private  institutions  for  the  feeble-minded, 
and  the  four  are  given  a  chapter  and  a  table  by  themselves. 

The  six  private  institutions  caring  for  physically  crippled  chil- 
dren, constituting  another  distinct  class,  are  separately  treated  and 
tabulated.  To  assemble  in  Part  Two,  as  above  noted,  practically 
all  the  institutions  for  special  classes,  the  chapter  and  table  relating 

45 


I 


CHILD   WELFARE   WORK    IN    PENNSYLVANIA 

to  crippled  children  are  located  immediately  after  those  relating  to 
mental  defectives. 

A  summary,  which  includes  all  but  the  almshouses,  com- 
pletes Part  Two. 

The  53  child-caring  agencies  constitute  Part  Three.  The 
agencies  which  have  as  their  main  work  the  investigation  of  cases 
and  general  handling  of  children,  are  necessarily  separated  from 
the  institutions  for  continued  care.  They  are  also  subdivided,  for 
tabulation  purposes,  according  to  function  and  location,  into  five 
groups.  To  place  the  agencies  before  the  institutions  for  perma- 
nent care  seems  to  be  the  logical  order,  as  their  direct  care  of  chil- 
dren is  usually  brief  and  preliminary  to  more  permanent  placement 
in  family  homes  or  institutions. 

The  grouping  of  the  remaining  175  private  institutions  is  more 
complicated.  There  are  1 53  orphanages  and  homes  for  dependent 
children  which  are  divided  into  five  groups,  based  on  type  of 
housing  and  religious  aff)liation.  The  remaining  22  institutions 
care  for  both  adults  and  children,  and  are  treated  and  tabulated 
separately.  These  six  groups,  with  a  summary  of  the  175  private 
institutions  and  a  general  summary  of  all  the  regular  child-caring 
agencies  and  institutions,  compose  Part  Four. 

It  is  difficult  to  classify  in  a  satisfactory  way  an  agency  or 
institution  having  several  functions;  but  by  seeking  the  principal 
function  and  making  it  the  index,  in  most  cases  the  classification 
has  been  satisfactorily  accomplished. 

Table  G  provides  a  connected  view  of  the  kinds  and  numbers 
of  child-helping  institutions  in  Pennsylvania,  classified  as  above 
indicated. 


46 


\    l\\-pical  (;:(in,nrc,t;atc  lUiiKlin.u 


,sixu\   .Mi^.MoKiAi.   lioMi.,    Philadelphia.     iScc  Tabk'  17.  p 


The  Lawn  Dressers 


MM 


fi  i^  yi    ar   \;   ^    p   & 


* 


Twenty  Little  Tots 
Holy  Family  Polish  Orphan  Asylum,  Pittsburgh.     (See  Table  17,  p.  202) 


KINDS    AND    NUMBERS   OF    INSTITUTIONS 

TABLE     C— PUBLIC    AND    PRIVATE    AGENCIES    AND    INSTITUTIONS    BY 
NATURE    OF    WORK 


Table 
no. 


Type  of  management  and  nature  of  work 


Agencies  and 
institutions 


Public  Management 
Institutions  for  brief  and  incidental  care 
Almshouses  and  poorhouses 
Detention  homes  of  juvenile  courts 


Institutions  for  continued  care 

Soldiers'  Orphans'  Industrial  School 
County  homes  for  dependents 
Institutions  for  delinquents  and  defectives 


Total 


Total  institutions  under  public  management 


Private  Management 
Institutions  for  special  classes 

Institutions  for  delinquents  and  defectives 
Institutions  for  crippled  children 


Child-caring  agencies 
8  General  child-caring  agencies 

9-10         County  children's  aid  societies 

1 1  Humane  societies  for  children 

12  Special  child-caring  agencies 


Total 


Institutions  for  dependents 
14-15       Orphanages  and  homes — cottage  type 
16-18       Orphanages  and  homes — congregate  type 
19  Institutions  for  combined  care  of  adults  and  children 


Total 


Total  under  private  management 


Grand  total,  public  and  private 


Grand  total,  omitting  the  80  almshouses  and  the  7  special  child- 
caring  agencies* 


'These  are  omitted  from  the  summaries  of  the  general  tables  also. 


47 


CHAPTER    III 
THE  STATISTICAL  TABLES 

THE  information  gathered  regarding  the  several  groups  of 
institutions  has  been  put  as  far  as  possible  into  tabulated 

form.  The  written  text  of  the  various  chapters  to  which 
the  tables  are  attached  is  mainly  a  running  comment  upon  them, 
including  some  necessary  explanations  and  a  few  deductions  or 
suggestions.  The  tables  are  the  most  important  part  of  this  digest. 
In  the  text  where  comment  is  made  upon  the  statistics,  it  is  gen- 
erally made  in  the  present  tense,  although  a  few  changes  may  have 
occurred  by  the  time  this  book  is  issued.  In  paragraphs  where 
the  year  of  the  statistics  is  given,  the  past  tense  is  used. 

In  form  and  arrangement  the  tables  are  intended  to  embody 
the  idea  of  the  old  motto:  Let  the  facts  speak  for  themselves.  Be- 
fore beginning  the  descriptive  sections  in  which  the  tables  are  used, 
their  plans  and  details  should  be  known  and  understood. 

Omitting  the  80  almshouses,  whose  main  work  is  for  other 
classes  than  children  and  for  which  a  single  general  table  is  provided, 
and  the  53  child-caring  agencies,  the  tables  for  which  require  modi- 
fications, there  are  210  child-caring  institutions  in  the  state,  18 
under  public  management  and  192  under  private  management. 
For  these  a  set  of  four  related  tables  is  arranged  on  a  definite  sys- 
tematic plan,  covering  an  aggregate  of  about  40  points  for  each 
institution  or  group  of  institutions.  Each  of  these  tables,  while 
complete  in  itself,  is  designated  as  a  section  of  the  set  covering  the 
institution  or  group.  The  information  for  each  institution  or 
group  will  best  be  obtained  by  the  successive  study  of  each  section 
from  the  first  to  the  fourth.  This  set  of  tables  is  made  the  base 
for  the  set  provided  for  the  child-caring  agencies,  but  some  modi- 
fications are  made  necessary  by  the  character  of  their  work. 

I.  Section  A.  General  and  Financial.  This  table  is  in- 
tended to  give  an  outline  of  the  institution's  general  character  and 
its  investments  in  plant  and  endowment.     It  gives  the  location 

48 


THE    STATISTICAL   TABLES 

and  name,  year  of  founding,  religious  affiliation,  type  of  housing, 
date  of  the  report  quoted,  capacity,  cost  of  plant  per  bed,  value 
of  plant,  amount  of  endowment,  and  total  value  of  property. 

2.  Section  B.  Comparative  Current  Statistics.  This 
table  takes  up  the  annual  expense  and  shows  the  total  for  main- 
tenance and  the  amount  paid  for  salaries,  with  per  capitas  for  total 
maintenance  and  for  salaries  based  upon  the  average  number  of 
children  in  care.  Then  follows  the  amount  of  public  funds  received 
during  the  year,  and  its  per  cent  of  the  annual  maintenance  expense. 
Final!)',  the  number  of  regular  employes,  the  average  number  of 
children  in  care,  and  the  average  number  of  children  per  emploj^e 
are  given. 

3.  Section  C.  Beneficiaries  and  Methods.  In  this 
table  are  recorded  the  class  of  children  cared  for,  the  sex  taken,  the 
age  limits  for  reception  and  discharge,  color  restriction,  how  the 
institution  investigates  its  applicants  for  admission,  and  how  it 
supervises  its  wards  who  are  placed  out  in  other  homes,  temporary 
or  permanent. 

4.  Section  D.  Statistics  of  Children.  Here  are  found 
the  vital  statistics  of  the  institution.  The  table  records  the  children 
in  the  institution  at  the  beginning  of  the  year  covered  by  the  report, 
the  children  received  during  the  year,  and  the  total  number  in  care 
during  the  year.  To  match  these  entrance  statistics  are  those 
showing  what  disposition  was  made  of  the  recorded  total,  in  columns 
showing  the  numbers  placed  in  family  homes,  returned  to  kin  or 
friends,  died,  disposed  of  otherwise,  and  remaining  in  care  or  under 
supervision  at  the  close  of  the  year. 

In  the  parts  dealing  with  the  public  institutions,  fairly  com- 
plete tables  are  presented  for  the  state  school  for  soldiers'  orphans, 
the  four  county  children's  homes,  and  the  four  training  schools  for 
delinquents  and  defectives.  Less  satisfactory  statistics  are  re- 
corded for  the  nine  detention  homes  of  juvenile  courts.  One  gen- 
eral table,  not  at  all  on  the  plan  outlined  above,  as  already  noted, 
has  been  formed  from  the  limited  material  furnished  by  the  alms- 
houses, some  of  which,  unfortunately,  are  without  records  worthy 
of  the  name. 

The  46  general  and  county  agencies  and  humane  societies,  all 
under  private  management  and  doing  active  child-caring  work,  are 

49 


CHILD   WELFARE    WORK    IN    PENNSYLVANIA 

quite  fairly  represented  in  the  tables.  Because  of  certain  differ- 
ences between  them  and  the  institutions,  a  number  of  points  were 
added  and  other  points  omitted,  and  the  set  of  four  tables  was 
reduced  to  three.  The  material  furnished  by  the  seven  special 
child-caring  agencies  was  very  meager  and  imperfect,  hence  they 
are  given  one  general  table,  which  defines  and  recognizes  them  as 
fully  as  possible. 

The  great  body  of  the  continued  child-caring  work  is  repre- 
sented in  the  division  entitled  Fart  Four,  containing  the  orphanages 
and  children's  homes  and  the  institutions  for  the  combined  care  of 
adults  and  children,  aggregating  175  of  the  private  institutions, 
tabulated  and  treated  in  six  groups. 

Four  principal  summaries  are  provided.  The  first  includes 
35  of  the  public  and  private  institutions  for  special  classes;  the 
second  contains  totals  and  averages  for  the  46  regular  child-caring 
agencies;  the  third  comprises  aggregates  of  the  si.x  groups  into 
which  the  175  private  institutions  are  divided;  a  fourth  brings  to- 
gether the  previous  three  to  give  a  general  view  of  the  entire  child- 
helping  work  of  the  state  as  related  to  delinquent,  defective,  and 
dependent  children.  All  of  these  summaries  will  be  found  exceed- 
ingly interesting  and  important.  A  list  of  the  tables  in  consecu- 
tive order  is  given  in  the  index  at  the  beginning  of  the  book. 

Two  more  items  of  detail  will  aid  in  making  clear  the  arrange- 
ment and  relations  of  the  tables.  First,  each  table  or  set  of  tables 
immediately  follows  the  chapter  to  which  it  relates.  Second,  as 
the  matter  in  Section  C  of  the  set  of  four  tables  is  descriptive  of 
beneficiaries  and  methods  in  individual  institutions,  and  can  not 
be  totaled,  it  does  not  appear  in  the  summaries,  which  therefore 
have  only  three  sections. 

For  several  reasons  the  statistics  in  these  tables  do  not  con- 
form exactly  to  those  published  by  the  state  board  of  public  chari- 
ties. The  fiscal  year  covered  was  not  always  the  same,  and  the 
items  included  are  often  difi'erent.  Materials  for  the  reports  were 
furnished  frequently  by  different  individuals,  who  varied  in  their 
estimates  of  property  values  or  did  not  have  equal  access  to 
accounts  or  books.  The  records  of  many  institutions  were  very 
imperfect.  In  some  cases  there  was  a  disposition  to  minimize 
property  values  and  the  maintenance  expenses;  in  others  an  appar- 

50 


THE    STATISTICAL   TABLES 

ent  desire  to  magnify  them.  A  substantial  agreement  in  the  reports 
obtained  by  two  independent  surveys  made  at  diiTercnt  times  is 
all  that  can  be  expected;  variation  in  details  is  certain  to  occur. 

Take  the  matter  of  property  valuations.  Our  visitors  se- 
cured separately  the  amounts  invested  in  plants  and  endowments. 
The  state  board  has  but  one  item  on  property  valuation,  and  it 
sometimes  includes  and  sometimes  excludes  the  endowments.  In 
some  cases  our  reports  give  the  value  of  property  used  for  children, 
while  the  state  board  includes  all  belonging  to  the  institution. 
Yet  a  total  for  a  hundred  institutions  would  vary  little  in  the  two 
reports. 

One  or  two  examples  of  extreme  variations  in  property  valua- 
tion may  be  of  interest.  The  Northern  Home  for  Friendless  Chil- 
dren at  Philadelphia  gave  to  the  state  board  a  valuation  of  $188,473 
and  to  our  visitor  one  of  $200,000  on  its  city  plant,  to  which  is 
added  $200,000  for  endowment.  Another  variation  is  due  to  the 
fact  that  the  Burd  Orphan  Asylum  of  Philadelphia  in  1910  re- 
ported to  the  United  States  Census  Bureau  at  Washington  the 
total  amount  of  its  property  as  $944,000;  less  than  two  years  later 
the  amount  given  to  our  visitor  was  $635,000.  This  was  only  a 
slight  difference  of  $309,000;  and  the  institution  is  first  class, 
apparently  well  managed,  and  had  no  known  losses  during  the 
period!  With  these  and  lesser  variations  to  be  considered,  all 
matters  relating  to  each  institution  have  been  carefully  studied 
and  estimates  accepted  which  seem  most  consonant  with  all  the 
known  facts. 

In  the  matter  of  maintenance,  items  included  or  excluded  are 
not  always  the  same.  The  limit  of  average  annual  repairs,  and 
what  should  be  counted  as  permanent  improvements,  is  a  matter  of 
judgment.  There  are  other  items  equally  uncertain  of  inclusion 
or  exclusion  when  making  up  a  current  expense  account.  We  have 
also  in  some  cases  recorded  only  maintenance  for  children,  while 
the  state  board  tabulates  the  entire  expense,  both  for  adults  and 
children.  For  these  and  other  reasons  there  are  many  discrep- 
ancies in  the  two  sets  of  tables.  Yet  in  most  cases  there  is  a  known 
and  valid  basis  for  the  difference.  Great  effort  has  been  made  to 
avoid  errors  which  would  lead  to  unfair  per  capitas  or  averages. 

The  text  of  the  chapters  in  Parts  Two,  Three,  and  Four  con- 
51 


CHILD   WELFARE    WORK    IN    PENNSYLVANIA 

sists  mainly  of  outlined  descriptions  of  the  groups  and  institutions. 
In  Parts  Two  and  Three  the  numbers  in  each  group  are  small 
enough  to  allow  of  a  paragraph  for  each  institution  or  agency.  In 
Part  Four  it  was  deemed  inadvisable  to  attempt  this,  and  a  few 
sample  institutions  of  each  group  are  thus  outlined,  mainly  as  a 
guide  to  the  information  easily  obtainable  in  regard  to  all  in  the 
tables  at  the  close  of  the  chapters. 

Having  described  the  grouping  of  the  agencies  and  institu- 
tions, the  scheme  of  tabulation,  and  how  this  report  may  justly  be 
compared  with  other  reports,  we  pass  to  the  more  detailed  study  of 
Pennsylvania's  present  facilities  for  the  care  of  these  various  classes 
of  needy  children,  and  the  situation  as  indicated  by  the  results  of 
the  study. 


52 


PART  TWO 

MISCELLANEOUS  INSTITUTIONS 
FOR  CHILDREN 


Not  all  the  poor  are  dependents,  and  poverty  is  a  merely  relative 
matter.  A  poor  Irishman  would  be  counted  rich  in  Patagonia.  Depend- 
ency admits  of  degrees,  and  shades  off  upward  into  simple  misfortune  and 
downward  into  abject  beggary  and  crime. 

There  is  solidarity,  organic  connection,  between  dependents  and 
delinquents.  They  cannot  be  studied  or  treated  as  if  they  belonged  in 
compartments  separated  by  impervious  walls.  Very  often  a  single  family 
will  impose  upon  society  the  burden  of  ill-born  and  badly  trained  children, 
who  will  be  dispersed  in  later  years  among  dependents,  defectives  and 
delinquents.— Charles  R.  Henderson. 

It  is  vitally  important  that  child-caring  institutions  shall  be  so 
organized  as  to  accomplish  the  beneficent  purpose  for  which  they  are  in- 
tended; that  they  shall  be  so  wisely  planned  and  so  faithfully  administered 
as  to  insure  the  safety  of  the  lives  of  the  children  who  are  to  be  committed 
to  them,  the  development  of  their  bodies  to  the  highest  degree  of  efficiency, 
wise  and  practical  intellectual  education,  and  the  highest  possible  spiritual 
development. 

Many  of  the  juvenile  reformatories  were  at  first  in  reality  juvenile 
prisons.  .  .  .  The  juvenile  reformatory  of  the  twentieth  century  is 
organized  on  essentially  different  principles.  It  abandons  entirely  the 
prison  method  and  the  idea  of  retributive  punishment.  Its  design  is  to 
create  and  establish  right  character  in  delinquent  children,  when  all  other 
agencies  have  failed. — Hastings  H.  Hart. 


CHAPTER   IV 
ALMSHOUSES  AND   POORHOUSES 

OF  the  80  county,  township,  or  borough  almshouses,  52 
were  caring  for  children  when  the  visiting  agents  called  in 
the  latter  part  of  the  year  1912.  The  number  of  children 
then  being  cared  for  was  582.  During  the  preceding  year  an  aggre- 
gate of  3,002  children  had  been  in  care.  Of  the  582  on  hand  at  the 
time  of  the  study,  528  were  declared  by  the  almshouse  officials  to 
be  normal  and  54  unsound  or  abnormal.  As  no  psychological  tests 
are  taken  in  most  of  the  counties,  it  is  certain  that  very  many  more 
than  54  should  be  classed  as  physically  or  mentally  deficient. 
Under  present  conditions  proper  mental  diagnosis  and  the  separa- 
tion of  the  unsound  from  the  normal  are  almost  impossible. 

In  54  of  the  almshouses  no  method  of  care  was  designated 
or  there  was  no  effort  to  separate  children  from  the  other  inmates. 
In  nine  the  babies  and  the  girls  were  kept  in  the  women's  section  of 
the  institution,  and  the  large  boys  in  the  men's  section;  in  10  the 
children  were  kept  wholly  in  the  women's  building,  or  the  ad- 
ministration building;  seven  had  special  rooms  for  children. 

In  Philadelphia  County,  in  two  almshouses  the  children 
are  kept  with  other  inmates;  at  the  Blockley  Almshouse  there  is  a 
separate  children's  building,  but  it  is  inadequate,  and  large  num- 
bers of  children  are  scattered  through  other  portions  of  the  insti- 
tution, many  of  them  being  sent  to  the  hospital  for  the  treatment 
of  skin  diseases  or  minor  nose  and  throat  operations.  At  Harris- 
burg  two  rooms  in  the  almshouse  are  arranged  as  a  substitute  for  a 
juvenile  court  detention  home;  so  that  few  children— and  these 
mere  babes — are  in  the  part  assigned  to  paupers,  although  they  are 
in  the  same  building. 

As  a  general  impression  made  upon  the  visitors,  it  may  be 
said  that  the  physical  facilities  for  the  care  of  children  were 
"good"  in  22  of  the  almshouses;  physically  good  but  bad  in  influ- 
ence in  two;  "fair"  in  19;  "poor"  in  nine;  while  the  facilities  of  28 
were  not  defined. 

55 


CHILD   WELFARE    WORK    IN    PENNSYLVANIA 

The  conditions  in  most  of  the  almshouses  are  as  good  as  can 
be  expected  under  the  present  system.  The  buildings  are  modern 
in  only  a  few  instances,  and  owing  to  the  inadequacy  of  official 
inspection  there  is  slight  stimulus  toward  even  the  best  possible 
use  of  what  is  possessed.  Nearly  all  could  definitely  separate  the 
children,  at  least  from  objectionable  adult  inmates.  Many  could 
provide  separate  rooms  for  children  in  even  the  present  plants; 
and  the  placing  of  children  under  the  care  of  adult  inmates  is  al- 
most always  seriously  objectionable. 

Twenty-eight  of  the  almshouses  depend  mainly  on  the  county 
and  general  children's  aid  societies  for  assistance  in  the  disposition 
of  permanently  dependent  children.  Fifteen  of  them  stated  that 
such  children  were  immediately  transferred  to  other  institutions. 
Fourteen  stated  that  they  did  their  own  placing  in  family  homes, 
but  confessed  that  there  was  practically  neither  previous  investiga- 
tion of  homes  nor  after-supervision  of  the  children.  Twenty- 
three  either  recorded  no  children  or  had  no  defined  method. 

Four  almshouses  confessed  to  constant  violation  of  the 
"sixty-day  law."*  Nearly  all  of  the  others  declared  that  this 
law  is  carefully  observed;  and  in  most  of  them  there  is  evident  effort 
to  comply  with  its  provisions.  The  Pittsburgh  people,  claiming  to 
be  unable  to  do  so,  are  agitating  for  a  county  children's  home. 
One  of  the  directors  of  the  poor  in  Allegheny  County  had  a  bill 
introduced  in  the  191 3  legislature  enabling  poor  directors  to  estab- 
lish children's  homes  in  connection  with  almshouses.  This  bill 
failed  to  pass. 

Owing  to  the  increased  efficiency  and  enlarged  work  of  the 
various  children's  aid  societies  and  other  placing-out  agencies, 
the  almshouse,  too  slowly,  yet  surely,  is  passing  from  its  former 
unsatisfactory  place  as  a  factor  in  the  child-caring  work  of  the 
state.  Yet  the  regrettable  fact  remains  that  in  the  past  year 
over  3,000  children  were  in  the  almshouses  of  the  state  for  an 
average  period  of  about  three  months.  The  average  number 
constantly  in  care  was  over  500. 

Our  illustrations  of  child  life  in  almshouses  happen  to  be 
from  Allegheny  County.  They  could  be  duplicated  in  various 
county  institutions  in  other  parts  of  the  state.     The  lesson  they 

*  See  p.  290. 

56 


1  he  liuilding  and  lis  l^lavgrcjund 


W  ard  for  Men— and  Little  Boys 
These  little  boys  played  in  this  men's  community  room,  ate  with  them, 
open  ward  with  paral\-tic  and  otherwise  (.lisahled  men 


>lept  in  the 


ALLHGHtNY  CoLNTV  HoMU  (AtMSHOLSh),  \\ood\ille.     (See  p.  56) 


■ 


■»Afc       H^ 


Playmates  at  Woodville 

Pennsylvania  law  permits  children  like  these  to  be  kept  sixty  days  in  almshouses.     Some 

are  kept  longer 


Caretakers  and  Children 
With  a  toilet  installed  alongside  the  beds,  this  was  used  as  both  sleeping  room  and  chi 
dren's  play-room 

Allegheny  County  Home  (Almshouse),  Woodville.     (See  p.  56) 


ALMSHOUSES  AND  POORHOUSES 

teach  is  not  limited  by  any  local  significance.  However,  it  would 
seem  that  in  this  regard,  because  of  its  large  population  and 
great  wealth,  Allegheny  County  has  duties  and  responsibilities 
above  the  average. 

The  present  situation  in  Allegheny  County  is  thus  clearly 
and  forcibly  described  by  Florence  L.  Lattimore: 

The  Pittsburgh  District  boasted  no  fewer  than  three  almshouses, 
one  for  the  county,  one  for  the  former  city  of  Allegheny,  now  merged  with 
Pittsburgh,  and  one  for  Pittsburgh  itself.  At  the  Pittsburgh  almshouse, 
called  the  City  Home,  a  modern  and  attractive  little  pavilion  had  been 
set  apart  for  the  children's  use.  It  was  light  and  had  a  small  yard  which 
contained  swings  and  toys.  Children  were  sometimes  kept  there  illegally 
for  many  months,  when,  for  instance,  the  mother  was  ill  in  the  almshouse 
hospital.  There  was  no  concealment  of  this  fact  by  the  management, 
which  would  have  welcomed  the  help  of  some  agency  in  relieving  it  of  such 
a  burden.  At  the  Allegheny  City  Home  the  law  was  strictly  enforced, 
although  one  might,  of  course,  find  babies  there  that  had  been  born  in  the 
institution.  At  the  County  Home  in  Woodville,  however,  conditions 
were  startlingly  bad.  Here,  the  objectionable  almshouse  features  which  led 
to  the  framing  and  passage  of  the  Children's  Law  in  1 883  still  persisted.  There 
were  no  separate  quarters  in  which  the  children  could  either  sleep  or  play. 

The  sanitary  conditions  were  particularly  objectionable;  one  room 
in  which  10  babies  and  little  girls  and  four  women  were  crowded  day  and 
night,  contained  a  toilet  built  boldly  into  one  corner,  and  separated  from 
it  only  by  a  thin  wooden  partition.  The  only  provision  for  ventilation  in 
this  living-sleeping  room,  as  in  the  other  rooms  where  children  were  kept, 
was  by  windows  which  were  rarely  opened;  the  heating  was  by  gas,  the 
air  was  foul.  Little  boys  over  two  years  of  age  slept  in  the  open  ward 
occupied  by  disabled  men — cripples,  paralytics,  and  locomotor  ataxia 
cases;  during  the  day  these  little  fellows  had  no  place  in  which  to  play 
except  the  sitting  room  where  the  men  smoked  and  played  cards.  Even 
the  sixty  days  to  which  their  stay  was  limited  was  too  long  a  period  to 
spend  in  such  surroundings. 

The  visitor  to  this  institution  upon  two  occasions  found  40  children, 
most  of  them  between  the  ages  of  four  and  sixteen,  standing  about  in 
listless  groups.  Nowhere  else  in  the  county  were  there  such  flagrant 
instances  of  charitable  and  civic  inertia  in  work  for  children  as  in  this 
county  home  at  Woodville.* 

*The  Pittsburgh  District:  Civic  Frontage,  pp.  343-344.  (The  Pittsburgh 
Survey.)  Article  by  Lattimore,  Florence  L. :  Pittsburgh  as  a  Foster  Mother. 
Russell  Sage  Foundation  Publication.     New  York,  Survey  Associates,  1914. 

57 


CHILD   WELFARE    WORK    IN    PENNSYLVANIA 

Let  it  not  be  thought  that  what  is  described  in  the  foregoing 
quotation  is  ancient  history  and  not  appUcable  to  present  condi- 
tions. In  the  spring  of  19 14  an  inquiry  was  made  by  the  Child 
Welfare  Association  of  Allegheny  County  and  the  Public  Charities 
Association  in  regard  to  the  numbers  and  condition  of  children  in 
the  county  almshouse  with  a  view  to  their  removal  from  that 
institution,  and  the  formulation  of  a  plan  which  would  make 
further  almshouse  commitments  of  children  unnecessary.  The 
inquiry  developed  that  at  that  time  there  were  49  child  inmates 
at  Woodville. 

There  is  scarcely  any  relieving  feature  in  a  situation  in  which 
innocent  defenseless  children  are  kept  in  close  proximity  to  help- 
less old  age,  loathsome  disease,  and  vicious  morals;  and  in  some 
cases  are  obliged  to  live  in  close  association  with  idiots  and  the 
insane. 

Professor  Charles  R.  Henderson,  in  his  book  on  Dependent, 
Defective,  and  Delinquent  Classes,  draws  a  picture  of  the  contents 
ofpoorhouses  in  these  words:  "Into  these  receptacles  of  suffering 
people  flowed  all  sorts  of  rejected  material,  the  aged,  the  sick,  the 
insane,  forsaken  children,  inebriates,  the  blind,  deaf  mutes,  the 
worn-out  criminals  and  prostitutes,  the  epileptic,  the  demented, 
and  the  paralytic.  As  the  poorhouse  was  the  most  unattractive 
place  in  the  county,  and  the  inmates  were  without  influential 
friends,  and  the  superintendent  not  always  chosen  for  his  special 
fitness  for  such  an  office,  abominable  abuses  grew  up,  and  in  many 
places  still  continue."* 

Charles  Dickens  wrote,  "Throw  a  child  under  a  cart  horse's 
feet  and  a  loaded  wagon  sooner  than  take  him  to  an  almshouse." 
This  may  be  an  extravagant  statement,  but  all  good  citizens  will 
agree  that  the  ordinary  poorhouse  is  no  place  for  a  child,  and  that 
every  progressive  commonwealth  should  provide  other  and  better 
disposition  for  all  children  dependent  upon  public  care. 

In  addition  to  a  presentation  of  these  facts  and  statements, 
and  based  upon  them,  the  following  action  is  urgently  recom- 
mended: 

*  Henderson,  Charles  R.;  Dependent,  Defective,  and  Delinquent  Classes, 
p.  72.     Boston,  D.  C.  Heath  and  Co.,  1904. 

58 


ALMSHOUSES  AND  POORHOUSES 

1.  That  the  present  state  law  prohibiting  the  keeping  of 
normal  children  in  almshouses  for  more  than  sixty  days  be  rigidly 
enforced  in  every  county. 

2.  That  increased  and  more  efficient  state  inspection  be 
given  almshouses  in  order  to  secure  a  strict  compliance  with  the 
laws  relating  to  the  care  of  children,  and  to  improve  the  care  and 
condition  of  adult  inmates. 

3.  Such  enforcement  and  inspection  under  present  laws  are 
duties  of  the  state  board  of  charities,  which  for  lack  of  funds  and 
agents  can  make  only  a  part  of  the  needed  visits  and  investigations, 
although  its  officers  are  putting  forth  strenuous  efforts  to  fulfill 
their  obligations.  Therefore,  provision  should  at  once  be  made 
to  supply  the  state  board  with  adequate  facilities  and  trained 
visitors. 

4.  That  the  advanced  position  taken  by  many  states,  in- 
cluding Massachusetts,  New  York,  Michigan,  Minnesota,  and 
Colorado,  some  of  which  acted  on  this  matter  at  least  thirty 
>'ears  ago,  where  laws  are  in  force  absolutely  forbidding  the  care 
of  children  in  almshouses,  be  taken  at  the  earliest  possible  date  by 
Pennsylvania. 

5.  That  to  establish,  as  is  now  proposed,  a  number  of  county 
children's  homes  to  provide  for  the  children  in  public  care  now  ac- 
commodated in  almshouses,  in  our  judgment  is  both  inadvisable 
and  unnecessary.  Such  institutions  in  effect  would  be  junior 
almshouses.  Instead  of  establishing  such  homes,  county  and  other 
officials  are  urged  to  enter  into  close  co-operative  relations  with 
suitable,  officially-approved  child-caring  agencies  and  institutions. 


59 


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65 


CHAPTER  V 
DETENTION  HOMES  OF  JUVENILE  COURTS 

THE  juvenile  court  law  of  Pennsylvania  enacted  in  1903 
requires  the  establishment  in  every  county  of  the  state  of 
a  detention  home  for  children  awaiting  action  of  the  court. 
Only  a  few  have  really  complied  with  the  letter  of  the  act;  nine  have 
definite  but  not  always  adequate  provision  for  such  children; 
perhaps  a  dozen  or  more  have  substitutes  in  adapted  rooms  in 
county  buildings,  or  arrangements  for  the  board  of  children  in 
private  families  or  in  private  institutions.  A  prominent  example 
of  the  last  is  in  Luzerne  County,  where  the  United  Charities  Home 
at  Wilkes-Barre  is  used  as  a  detention  home. 

Of  the  nine  homes  concerning  which  somewhat  definite 
information  was  obtained,  three  are  in  rooms  in  county  buildings — 
one  in  a  jail,  one  in  an  almshouse,  and  one  in  a  building  otherwise 
devoted  to  offices;  one  uses  a  rented  cottage;  one  is  a  farm  property; 
that  at  Scranton  uses  part  of  a  building,  while  the  Associated  Chari- 
ties occupies  the  remainder;  one  is  a  special  "cottage"  belonging  to 
the  county;  and  two  are  more  extensive  modern  buildings. 

No  valuations  could  be  obtained  save  for  the  last  three. 
These  are:  Erie,  Detention  Home,  $6,500;  Montgomery  County 
at  Norristown,  House  of  Detention,  $33,000;  and  Philadelphia, 
House  of  Detention,  $203,000;  or  a  total  of  $242,500. 

In  very  few  of  the  detention  homes  is  there  any  satisfactory 
recording  or  statistical  system.  Such  records  as  are  kept  are  on 
the  line  of  meal  tallies,  or  supply  items,  and  related  to  individuals 
only  by  way  of  getting  at  per  diem  or  other  per  capita  cost  of  service. 
Except  in  Philadelphia,  and  in  a  smaller  degree  in  Pittsburgh  and 
Norristown,  there  seems  to  be  no  efi'ort  to  make  or  keep  records 
of  the  children  as  such,  much  less  a  conception  of  the  need  of  medi- 
cal and  psychological  examinations. 

It  should  be  said  to  their  credit  that  the  counties  of  Erie, 
Montgomery,  and  Philadelphia  have  taken  the  juvenile  court 
law  seriously  in  reference  to  houses  of  detention;  have  provided 

66 


-  '-'iiiit;; 


jiiiiiiifiilri 


Building  at  Arch  and  Twenty-st-cond  Streets 


^ 


Roof  Gymnasium  and  Ph\sical    I  rainin.i;  Clas^ 
Philadelphia  House  of   Detention.     (See  p.  67) 


I  he  School  Room 


The  Kitchen 
Philadelphia   House  of   Detention.     (See  p.  67) 


DETENTION    HOMES    OF   JUVENILE    COURTS 

fine  modern  buildings,  probably  equally  adequate  in  proportion 
to  the  needs  of  the  population  served,  and  are  endeavoring  to 
utilize  the  plants  in  accordance  with  advanced  ideas.  That  most 
of  the  other  counties,  so  far,  have  used  makeshifts  of  various  kinds, 
overlooking  the  letter  and  often  the  spirit  of  the  law;  and,  not- 
withstanding the  mandatory  character  of  the  statute,  ten  years 
after  its  enactment  have  no  detention  homes  worthy  of  the  name, 
is  a  sad  indication  of  conservatism  and  inertia.  Over  60  of  the 
67  counties  should  cease  to  emulate  Rip  Van  Winkle  in  this  matter, 
and  modernize  their  methods. 

The  fine  detention  building  at  Philadelphia  deserves  more 
extended  notice.  As  already  stated,  it  is  modern  in  construction, 
is  practically  fireproof,  and  is  well  equipped  with  sanitary  furnish- 
ings and  with  scientific  apparatus  for  medical  and  psychological 
examinations.  There  are  20  employes  in  addition  to  two  school 
teachers  furnished  by  the  department  of  education,  and  four  physi- 
cians who  are  without  compensation.  Although  the  capacity  of 
the  house  of  detention  is  only  70,  a  total  of  2,623  children  were  in 
care  during  the  year  191 1.  This  number,  however,  includes  some 
duplications,  as  in  a  few  cases  the  same  children  were  detained  a 
short  time  more  than  once  in  that  period.  The  cost  of  mainte- 
nance was  524,089,  of  which  the  sum  of  $13,500  was  expended  in 
salaries. 

The  superintendent  of  the  Philadelphia  House  of  Detention, 
H.  P.  Richardson,  very  suggestively  said  in  191 3: 

Under  the  present  system  of  having  juvenile  court  only  once  a  week, 
the  Detention  Home  serves  the  same  purpose  as  the  county  prison,  being 
a  place  where  those  children  who  cannot  secure  bail  are  kept  awaiting 
their  trial.  With  the  methods  now  in  use  of  arresting  children  as  crim- 
inals, holding  them  in  bail  as  criminals,  etc.,  it  is  not  to  be  wondered  at 
that  the  ideas  as  to  detention  are  also  unscientific  and  far  removed  from 
the  true  spirit  of  the  Juvenile  Court  Act. 

This  quotation  is  in  itself  almost  an  epitome  of  the  situation 
all  over  the  state;  and  while  exceptional  counties,  officers,  and 
courts  have  caught  the  impulse  of  better  ideas  and  methods,  most 
of  them  have  not  yet  in  this  regard  crossed  the  line  into  the  twen- 
tieth century. 

Within  a  very  short  time  there  has  been  an  improvement  in 
67 


CHILD   WELFARE    WORK    IN    PENNSYLVANIA 

juvenile  court  conditions  in  Philadelphia.  Under  date  of  January 
17,  1 914,  H.  P.  Richardson,  mentioned  above,  in  a  personal  letter 
states: 

Since  the  new  arrangement  went  into  effect  (January  i,  19 14)  all 
children  come  before  the  Juvenile  Court  without  any  preliminary  hearing 
before  a  magistrate.  The  Judge  is  assigned  for  one  year  and  the  Court  is 
held  in  the  House  of  Detention  where  the  arrangements  permit  of  the 
hearing  of  each  case  apart  from  any  others  which  may  be  waiting.  Having 
no  other  court  work  to  do  the  Judge  can  give  his  full  time  and  strength  to 
the  Juvenile  Court  and  as  ample  quarters  are  provided  for  the  Chief  Pro- 
bation Officer  and  his  staff,  the  House  becomes  the  center  of  activity  for 
the  care  of  children  who  for  any  reason  become  wards  of  the  Courts. 

A  new  Chief  Probation  Officer  has  been  appointed,  a  man  who  has 
been  the  successful  Superintendent  of  one  of  the  largest  and  most  progress- 
ive of  Philadelphia's  Public  Schools.  The  probation  force  has  been 
strengthened  by  the  addition  of  two  men  officers  and  it  is  expected  that 
from  time  to  time  more  men  will  be  added.  The  new  arrangement  is  in 
full  operation  and  going  finely.  I  am  glad  that  you  will  be  able  to  include 
this  good  news  in  your  report. 


68 


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70 


CHAPTER  VI 
STATE  AND  COUNTY  HOMES  FOR  DEPENDENTS 

THE  five  public  institutions  in  this  group  include  one  under 
state  management,  the  Soldiers'  Orphans'  Industrial 
School  at  Scotland,  and  four  county  children's  homes. 
While  nearly  all  the  children  cared  for  in  these  institutions  are  de- 
pendents, there  are  a  few  mental  and  physical  defectives  in  the 
county  homes. 

These  special  children's  homes,  which  are  in  addition  to  the 
county  almshouses,  are  located  in  the  counties  of  Beaver,  Blair, 
Greene,  and  Washington.  The  dependent  or  defective  children  of 
their  respective  fields  are  received  under  order  of  the  courts,  the 
county  commissioners,  or  the  directors  of  the  poor.  If  normal, 
there  is  generally  a  provision  that  after  the  child  has  been  an  inmate 
thirty  days  or  more,  the  officials  "  shall  be  authorized  to  secure  a 
suitable  home  for  said  child,  if  said  board  of  directors  deem  same 
advisable." 

These  five  institutions,  which  are  practically  the  only  ones 
in  the  state  under  public  management  that  are  devoted  primarily 
to  the  care  of  dependent  children,  deserve  somewhat  detailed 
mention.  It  should,  however,  be  recognized  that  the  separate  chil- 
dren's building  at  the  Blockley  Almshouse,  Philadelphia,  is  an  ef- 
fort along  the  same  line;  but  as  this  building  is  one  of  a  connected 
group,  it  is  not  considered  a  separate  institution  like  those  here 
treated. 

I.     Soldiers'  Orphans'  Industrial  School 

This  institution,  located  at  Scotland,  was  founded  in  1863. 
There  are  two  large  three-story  brick  buildings  connected  by  a 
long  porch  or  open  hall,  beautifully  located  on  a  tract  of  50  acres 
of  rolling  land  with  fine  shade  trees  and  a  small  lake.  The  capac- 
ity is  500;  valuation  of  the  property,  $171,000. 

The  state  for  many  years  had  a  similar  institution  at  Chester 
Springs,  Chester  County;  but  it  was  discontinued  in  August,  1912, 

71 


STATE    AND    COUNTY    HOMES 

at  Williamsburg  in  1901.  The  site  contains  about  four  acres  of 
ground,  giving  a  fine  lawn,  numerous  shade  trees,  and  space  for  a 
vegetable  garden.  The  building  is  a  good-sized,  modern,  two- 
and-a-half-story  brick  building,  with  a  capacity  of  32  children. 
There  were  66  in  care  during  the  year  ending  May  31,  191 2; 
valuation  of  the  property,  §20,000.  A  regular  teacher  is  employed, 
and  there  is  a  bright  and  cheerful  school  room  with  30  desks. 
In  spite  of  the  name,  there  is  as  yet  no  regular  industrial  training. 
Of  course  the  larger  children  assist  in  the  housework. 

In  cleanliness  and  order  the  home  is  well  up  to  standard. 
Here,  as  in  Greene  County,  the  numbers  run  high  in  winter  and 
low  in  summer,  the  larger  boys  and  girls  serving  in  private  families 
during  the  busy  season,  and  then  finding  their  way  back  to  the 
county  home  in  the  fall.  The  placing-out  of  children  is  in  the 
hands  of  the  county  commissioners.  They  require  a  recommenda- 
tion of  a  home  before  approving  it,  but  the  home  is  not  visited 
before  a  child  is  placed,  and  after-supervision  is  entirely  ignored. 

The  average  number  of  children  on  hand  was  30;  the  ex- 
pense for  salaries  was  $1,333,  or  a  per  capita  of  $44;  the  total  cost 
of  maintenance  was  $4,355,  or  an  average  per  capita  cost  of  $145. 
All  of  the  expense  was  met  by  appropriations  from  the  public 
treasury. 

4.     Greene  County  Children's  Home 

The  Greene  County  Children's  Home,  located  five  miles 
from  Waynesburg,  was  established  in  1884.  It  has  a  farm  of  76 
acres,  and  the  main  building  is  an  old  two-story  brick  farm  house 
remodeled.  The  capacity  is  only  25.  During  the  year  studied, 
75  children  were  in  care.  The  equipment  is  partly  modern;  val- 
uation is  set  at  $34,000.  The  home  is  usually  overcrowded  in 
winter  and  about  half  filled  in  summer.  The  average  stay  of 
children  is  about  four  months.  Good-sized  boys  and  girls  are  in 
demand  each  spring,  and  the  greater  number  are  returned  in 
the  fall.  They  are  placed  with  very  little  investigation  of  the 
homes,  and  there  seems  to  be  no  after-supervision. 

The  average  number  of  children  on  hand  was  25;  the  ex- 
pense for  salaries  was  $3,186,  or  a  per  capita  of  $127;  the  total  cost 
of  maintenance  was  $8,958,  or  an  average  per  capita  cost  of  $358. 

73 


CHILD   WELFARE   WORK    IN    PENNSYLVANIA 

No  explanation  was  given  of  this  exceedingly  high  cost  of  care. 
The  entire  maintenance  was  from  public  funds. 

5.     Washington  County  Children's  Home 

The  Children's  Home  of  Washington  County,  located  near 
the  county  seat,  was  established  in  1870  and  is  of  the  regular 
congregate  type,  with  a  capacity  of  125.  The  property  includes 
22  acres.  The  building  is  a  three-story  brick  structure.  There 
are  no  fire-escapes.  The  valuation  of  the  property  is  $74,000. 
The  dormitories  average  27  beds  each,  with  toilets  and  lavatories 
adjacent,  all  in  good  condition.  All  over  the  building  is  a  ming- 
ling of  ancient  and  modern  methods.  It  is  made  a  punishable 
offense  for  any  child  to  use  a  towel  other  than  his  own;  but  the 
children  do  not  have  their  own  individual  clothing,  being  clad 
from  a  general  supply  filed  away  by  sizes.  This  was  explained  by 
the  superintendent  on  the  ground  that  the  changes  of  inmates  are 
too  frequent  for  the  home  to  provide  individual  outfits  of  cloth- 
ing. 

On  the  first  floor  of  the  building  are  offices,  private  rooms  for 
officers,  a  play  room  for  girls  and  boys,  and  a  large  and  well- 
equipped  school  room.  There  is  an  isolated  infirmary  with  seven 
beds.  Adjacent  to  the  infirmary  are  a  special  kitchen  and  suitable 
lavatory  facilities.  The  spirit  of  the  management  is  very  favor- 
able towards  placing-out  in  families  all  children  who  can  not  be 
expected  to  return  to  parents  or  relatives.  The  homes  used  are  in- 
vestigated by  a  paid  agent  who  supervises  the  children  after 
placement. 

The  average  in  care  was  70  children;  the  expense  for  salaries 
was  $4,222,  or  a  per  capita  of  $60;  the  total  cost  of  maintenance 
was  $  1 1 ,724,  or  an  average  per  capita  cost  of  $  1 67.  N  inety-fi ve  per 
cent  of  the  maintenance  was  from  public  funds. 

GENERAL  COMMENTS 

By  current  report  Allegheny  County  is  contemplating  the 
erection  of  a  similar  institution  for  the  care  of  dependent  children. 
It  is  hoped,  however,  that  increased  co-operation  by  the  county 
officials  with  placing-out  agencies  and  existing  institutions  will 
render  such  action  unnecessary. 

74 


STATE    AND    COUNTY    HOMES 

Taking  the  group  of  five  state  and  count)'  institutions  as  a 
whole,  it  is  interesting  to  note  that  the  average  expense  per  capita 
for  salaries  was  ^59,  and  the  average  per  capita  for  the  total  ex- 
pense of  maintenance  was  $241.  As  will  be  seen  later,  this  is  a 
much  higher  average  than  is  found  in  the  general  run  of  institu- 
tions for  dependents  throughout  the  state.  It  is  also  evident  from 
the  foregoing  descriptions  that  the  best  institutions  are  often  run 
at  a  lower  average  cost  than  those  of  poorer  quality. 

In  Philadelphia  the  county  courts  commit  certain  needy, 
neglected,  and  dependent  children  to  the  department  of  public 
health  and  charities,  which  in  turn  uses  the  Children's  Aid  Society 
of  Pennsylvania  for  its  placing-out  work.  This  department  also 
takes  care  of  deserted  children  and  foundlings  received  through 
the  police  department,  and  makes  similar  use  of  such  approved 
agencies  and  institutions  for  their  care  and  ultimate  disposition. 

In  this  connection  it  may  be  remarked  that  there  is  great 
irregularity  in  the  county  care  of  dependent  children  in  Pennsyl- 
vania. The  situation  well  deserves  the  expression  "chaotic." 
There  is  great  need  for  a  more  uniform  system.  This  implies 
either  the  establishment  of  a  new  public  service  agency,  perhaps 
to  be  called  a  board  of  children's  guardians,  or  the  special  enlarge- 
ment of  the  scope  and  powers  of  the  existing  agency,  the  state  board 
of  charities, in  order  to  devise  a  satisfactory  system  and  to  enforce 
its  methods  by  adequate  authority. 

As  a  first  complete  set  of  institutional  tables  follows  this 
chapter  and  gives  in  related  and  consecutive  sections  much  val- 
uable information  concerning  these  five  institutions,  the  reader 
is  urged  to  give  to  them  especial  attention.  The  details  and  expla- 
nations given  in  Chapter  111,  The  Statistical  Tables,*  should 
be  clearly  in  mind  and  the  institutions  and  the  totals  for  the 
group  followed  successively  from  the  first  to  the  fourth  section  of 
the  set.  All  of  the  four  sections  are  essential  to  a  comprehensive 
view  of  any  or  all  of  the  institutions. 

*  See  pp.  48-32. 


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79 


CHAPTER  VII 
HOMES  AND  TRAINING  SCHOOLS  FOR   DELINQUENTS 

THERE  are  only  two  public  institutions  in  the  state  for  the 
care  and  training  of  delinquent  youth — the  Pennsyl- 
vania Training  School  in  Washington  County,  and  the 
Allegheny  County  Industrial  School  for  Boys  at  Warrendale,  now 
popularly  called  the  Thorn  Hill  School.  The  Glen  Mills  Schools, 
under  private  management  but  receiving  their  main  support  from 
public  funds,  take  the  place  of  public  institutions  for  this  class  in  the 
eastern  part  of  the  state. 

There  are  also  in  the  state  several  other  institutions  under 
private  management — most  of  them  receiving  large  financial  sup- 
port from  public  funds — devoted  to  the  care  of  delinquents  of  both 
sexes.  Like  the  Glen  Mills  Schools,  they  are  sometimes  called 
"semi-public"  institutions.  To  group  together  the  entire  definite 
provision  throughout  the  state  for  this  class,  they  are  here  assem- 
bled with  those  above  named  for  description  and  tabulation. 

I.  Pennsylvania  Training  School 

^  The  Pennsylvania  Training  School,  founded  in  1854,  is  a 
state  institution  for  the  wayward  and  delinquent  boys  and  girls 
of  the  western  part  of  the  state.  It  is  located  at  Morganza  Station, 
about  twelve  miles  southwest  of  Pittsburgh.  Eastern  Pennsyl- 
vania has  no  equivalent  state  school,  but  as  above  stated,  its  place 
is  taken  by  the  Glen  Mills  Schools.  The  Morganza  school  has  an 
excellent  site  of  450  acres  in  the  hills  of  Washington  County. 
Around  the  buildings  is  a  beautiful  and  spacious  lawn.  There  are 
a  football  field,  baseball  diamond,  and  a  running  track,  with  a 
grandstand  and  band  pavilion,  located  in  a  small  park.  In  the 
girls'  playgrounds  are  tennis  courts,  basketball  field,  and  so  forth. 
The  property  is  valued  at  $1,217,000;  the  current  expense 
for  the  year  ending  May  31,  1 91 2,  was  ^  1 2 1 , 1 62 ;  the  average  number 
in  care  was  448.     The  youngest  age  at  which  a  child  can  be  com- 

80 


HOMES    AND    SCHOOLS    FOR    DELINQUENTS 

mitted  is  seven  )ears,  and  the  limit  of  care  is  twenty-one  years; 
but  by  the  parole  system  very  few  remain  to  the  limit  unless  sent 
there  near  the  close  of  their  minority.  There  are  8i  officers  and 
employes,  or  one  to  every  5.5  inmates. 

The  buildings  are  generally  on  the  cottage  plan,  but  there  is 
a  wide  range  of  capacity,  from  65  down  to  20.  The  cottage  unit, 
recently  adopted,  is  30;  and  probably  all  hereafter  erected  will 
have  that  capacity.  There  are  six  separate  buildings  occupied 
b>'  boys,  and  three  by  girls;  and  the  administration  building,  which 
is  an  old  but  still  serviceable  four-story  structure,  is  the  home  of 
two  families  of  boys,  of  about  50  each.  The  total  present  capac- 
ity is  488.  There  are  numerous  other  buildings,  including  the 
new  kitchen  and  officers'  quarters;  the  gymnasium,  new  power 
plant,  industrial  group,  hospital,  and  many  barns  and  smaller 
buildings. 

It  should  be  said  that  this  old  institution  is  undergoing  a 
radical  transformation.  In  a  little  more  than  five  years  Superin- 
tendent W.  F.  Penn  has  reconstructed  the  greater  part  of  the 
buildings,  changing  from  large  ones  to  those  of  the  small  cottage 
type  as  far  as  possible.  Two  new  cottages  just  completed  and 
which  will  accommodate  30  each,  will  take  the  place  of  one  of  the 
original  buildings,  containing  65  inmates,  and  the  old  structure 
will  at  once  be  torn  down.  There  will  then  remain  but  one  of  the 
old  family  buildings,  which  will  also  be  vacated  and  destroyed  as 
soon  as  new  cottages  can  be  built  to  take  its  place.  The  influence 
of  modern  ideas  is  very  clearly  shown  in  this  demolition  of  an  old 
congregate  plant,  and  the  substitution  for  it  of  the  new  cottage 
family  homes  with  the  sanitary  and  other  conveniences  of  the  age. 

For  the  detailed  statistics  of  finance  and  children  in  care,  see 
the  set  of  tables  at  the  end  of  this  chapter.  The  per  capita  for 
salaries  was  ^106,  and  the  average  per  capita  cost  of  maintenance 
was  $270.  It  is  probable  that  these  are  above  the  average  for 
the  institution,  because  of  the  reconstruction  process  carried  on 
along  with  its  regular  work. 

2.     Thorn  Hill  School 

This  is  a  new  institution,  founded  in  191 1  and  located  near 
Warrendale,  in  the  northern  part  of  Allegheny  County.     From  its 

81 


CHILD   WELFARE    WORK    IN    PENNSYLVANIA 

location  it  is  called  the  Thorn  Hill  School.  The  site  is  a  farm  of 
1,100  acres,  and  already  buildings  valued  at  ^23 5,600  have  been 
erected.  The  institution  is  planned  as  an  industrial  village  of 
the  cottage  type,  and  13  fine,  permanent  cottages,  each  costing 
from  $16,000  to  $20,000,  have  been  completed.  These  are  of 
brick,  fireproof  construction,  and  each  will  accommodate  20  boys 
besides  the  officers  and  caretakers.  While  the  total  cost  to  date 
was  $390,400,  and  the  valuation  is  now  set  at  $400,000,  it  probably 
will  exceed  half  a  million  in  a  short  time,  as  the  development  of 
the  institution  progresses. 

All  of  the  boys  here  cared  for  are  between  eight  and  sixteen 
years  of  age  and  are  wards  of  the  juvenile  court.  There  is  no 
definite  term  of  commitment  and,  under  a  parole  system,  each  boy 
secures  his  release  when  he  has  earned  it. 

The  report,  which  was  personally  given  by  the  superintendent, 
was  for  the  year  ending  November  30,  1913,  which  was  practically 
the  second  year  of  regular  work. 

July  I,  191 1,  only  25  boys  were  at  the  school,  then  just 
started;  but  November  30,  191 2,  the  number  practically  equalled 
the  enlarged  capacity,  which  was  250,  and  so  continued  through 
the  year  of  the  report.  The  amount  expended  by  the  institution 
that  year  was  $2 1 5, 166,  of  which  $170,2 14  was  devoted  to  buildings 
and  permanent  equipment.  The  amount  used  in  maintenance 
expenses  was  $44,932;  the  average  number  of  boys  in  care  was 
220;  the  expense  for  salaries  was  $86  per  capita;  the  average  per 
capita  cost  of  maintenance  was  $204. 

The  institution  is  one  of  the  best  of  its  kind  and  bids  fair  to 
accomplish  much  in  the  way  of  industrial  training.  For  many 
other  details  see  the  statistical  tables. 

•3.    Glen  Mills  Schools,  Girls'  Department 

The  Glen  Mills  Schools,  founded  in  1826,  are  among  the 
best  known,  equipped,  and  managed  institutions  for  delinquents 
in  this  country.  Especially  is  this  true  of  the  Girls'  Department, 
since  its  removal  from  a  congregate  plant  in  the  city  of  Philadelphia 
to  a  cottage  plant  on  Sleighton  Farm,  near  Darlington  Station, 
Delaware  County. 

The  homes  for  the  girls  in  care,  v/ho  range  from  eight  to 
82 


In  thf  Kitchen 
Glfn   Mills  Schools— Girls'   Departmhnt  (Sleighton   Farm).     (See  p.  82) 


Crf'to<}k':i-r;^v'^5.».i.'  ■-.•: 


In  the  Field 


Harvest  Products 


Feeding  the  Fowls 
Glen  Mills  Schools — Girls'   Depaktment  (Slhighton   Farm).     (See  p.  82) 


HOMES    AND    SCHOOLS    FOR    DELINQUENTS 

eighteen  \ears  of  age,  are  nine  new  two-story  buildings  called 
cottages,  but  each  accommodating  more  girls  than  are  usually 
located  in  one  structure  of  the  "cottage"  type.  Five  of  them 
average  in  capacity  37  girls  each;  the  others  respectively  have 
43,  49,  82,  and  85  beds,  making  a  total  capacity  of  444.  Each  is 
a  complete  domestic  unit,  with  its  own  kitchen  and  dining  room, 
and  hot-water  heating  plant.  The  buildings  are  excellent  and 
fitted  with  the  best  modern  equipment.  The  rooms  are  well  lighted 
and  ventilated.  There  are  a  few  dormitories,  but  in  the  main 
the  sleeping  quarters  are  single  rooms  of  fair  size,  well  but  plainly 
furnished,  many  of  them  adorned  quite  attractively  by  the  personal 
efforts  of  girls  of  the  higher  t\pes. 

The  plant  at  Sleighton  Farm  is  valued  at  8205,300,  and  the 
average  number  of  girls  in  care  for  the  year  studied  was  400.  There 
is  no  endowment.  While  only  47  per  cent  of  the  year's  expense 
was  credited  to  public  funds,  most  of  the  remainder  was  from  an 
unexpended  balance  on  hand,  probably  originally  from  the  state 
treasury.  The  salary  expense  was  $32,969,  or  $82  per  capita; 
the  total  cost  of  maintenance  was  $85,772,  or  an  average  of  $214 
per  capita.  There  were  68  regular  employes,  or  one  for  each  5.9 
inmates.  During  the  year,  401  girls  were  received,  and  a  total  of 
777  different  girls  were  inmates  for  an  average  period  of  from  four 
to  six  months. 

4.  Glen  Mills  Schools,  Boys'  Department 
The  Boys'  Department  of  the  Glen  Mills  Schools  is  located 
about  five  minutes'  walk  from  the  Glen  Mills  Station,  in  the  west- 
ern part  of  Delaware  County.  The  institution  was  formerly 
called  the  House  of  Refuge,  and  the  name  is  yet  occasionally  used. 
As  stated  in  regard  to  the  Girls'  Department,  the  institution  was 
founded  in  1826,  and  although  under  the  management  of  a  self- 
perpetuating  private  board  of  managers,  takes  the  place  of  a  state 
reform  school  for  Eastern  Pennsylvania.  The  departments  are 
entirely  separate  both  in  location  and  administration,  and  yet  in 
another  sense  are  like  the  two  halves  of  an  apple,  complem.ents 
each  to  the  other. 

The  department  for  boys  is  beautifully  located  on  high,  hilly 
ground.     The  buildings  are  arranged  in  a  quadrangle  around  a 

83 


CHILD   WELFARE    WORK    IN    PENNSYLVANIA 

large,  open  court.  The  administration  building  is  at  one  end, 
and  opposite,  across  the  court,  is  a  large  and  well-equipped  chapel, 
capable  of  seating  at  least  900  boys.  At  the  sides  of  the  court  are 
the  buildings  for  the  boys  and  a  school  house. 

Other  buildings  stand  outside  of  the  original  quadrangle 
plan.  At  present  there  are  nine  buildings  for  inmates  of  the  insti- 
tution. Six  have  an  average  capacity  of  100  boys  each,  one  accom- 
modates 160  boys,  one  provides  for  80  boys,  and  one  has  beds  for 
only  25  boys;  making  a  total  capacity  of  865. 

The  larger  buildings  are  three-story  brick  structures,  covered 
with  ivy  and  in  good  repair.  In  applying  the  family  idea  to  the 
care  of  the  inmates,  the  buildings,  most  of  which  are  called  "  double 
cottages,"  have  been  divided  by  solid  partitions,  to  accommodate 
17  groups,  each  to  average  50  boys,  and  to  make  each  household 
in  its  details  entirely  independent  of  the  others. 

There  is  a  large  central  kitchen,  where  the  greater  part  of  the 
cooking  is  done  for  the  entire  institution.  The  food  is  sent  around 
to  the  buildings  by  means  of  a  little  railway,  with  inclosed  and 
heated  "box-cars."  The  boys  are  dressed  alike  in  a  gray-blue  uni- 
form with  brass  buttons,  on  which  is  the  name  of  the  school.  The 
clothing  is  not  individual,  but  is  served  out  from  a  common  stock. 

The  plant  is  valued  at  ^671,300.  There  is  no  endowment. 
The  average  in  care  for  the  year  studied  was  757;  the  salary  expense 
was  $52,272,  or  $69  per  capita;  the  total  cost  of  maintenance  was 
1 1 49,664,  or  an  average  per  capita  of  $198.  The  entire  support 
was  from  public  funds.  The  school  received  449  wards  during 
the  year,  and  there  were  i  ,272  different  boys  in  care  for  a  longer 
or  shorter  time.  There  are  93  regular  employes,  or  one  for  each 
8. 1  of  the  average  of  boys  in  care. 

5.    George    Junior    Republic    of    Western    Pennsylvania 

This  is  a  nonsectarian  institution  for  delinquent  boys  and 
girls  of  Western  Pennsylvania,  usually  not  under  fifteen  years  of 
age  and  rated  sound  in  mind  and  body.  It  was  established  Decem- 
ber I,  1909.  Its  central  peculiarity  is  the  privilege  granted  to  the 
inmates,  who  are  called  citizens,  of  "self-government,  provided 
they  follow  out  the  spirit  of  the  constitution  and  laws  of  the  United 
States  and  the  State  of  Pennsylvania." 

84 


HOMES    AND    SCHOOLS    FOR    DELINQUENTS 

The  site  of  the  RepubHc  is  a  farm  of  i  lo  acres,  located  about 
one  mile  from  Grove  City  in  Mercer  County.  There  are  two 
modern  three-story  frame  cottages,— the  capacity  of  the  one  for 
boys  being  32,  and  the  one  for  girls,  20,— a  school  building,  jail, 
barn,  and  other  outbuildings.  The  entire  plant  is  valued  at  $41,- 
000.     There  is  no  endowment.' 

The  boys  and  girls  seem  to  take  their  privilege  of  self-govern- 
ment seriously  and  are  devoted  to  the  institution.  All  have  a 
great  deal  of  healthy  outdoor  life.  They  impose  upon  themselves 
and  carefully  enforce  a  wholesome  discipline.  Even  the  religious 
services  are  to  a  large  extent  managed  by  the  "citizens."  Con- 
siderable social  intercourse  between  the  sexes  is  allowed  and  is 
declared  to  be  very  helpful.  It  was  stated  that  so  far  there  has 
been  but  one  known  case  of  immorality  among  them.  The  super- 
intendent said  he  would  feel  much  easier  if  he  had  only  one  sex 
to  deal  with,  but  believed  the  benefits  of  the  present  plan  out- 
weighed its  dangers  and  anxieties. 

The  average  in  care  for  the  year  ending  May  31,  19 12,  was 
45 ;  the  salary  expense  was  $3,062,  or  $68  per  capita;  the  total  cost 
of  maintenance  was  $16,440,  or  an  average  per  capita  of  $365. 
The  Republic  received  65  per  cent  of  its  expense  from  public  funds. 
During  the  year,  24  new  "citizens"  were  received  and  there  was  a 
total  of  67  in  care.  There  were  five  regular  employes,  or  one  for 
each  nine  of  the  average  number  of  "citizens." 

6.     St.  Joseph's  Protectory  for  Girls 

This  institution,  which  is  under  the  management  of  the 
Sisters  of  the  Good  Shepherd  of  the  Roman  Catholic  church,  is  at 
Norristown,  Montgomery  County.  It  is  located  on  a  thirteen- 
acre  tract  on  the  summit  of  the  hill,  well  back  from  the  main  busi- 
ness part  of  the  city.  A  high  wall  surrounds  the  entire  site.  The 
building  is  cruciform,  only  partly  modern  in  equipment,  and  is  a 
perfect  labyrinth  for  strangers.  Some  of  the  dormitories  are 
large,  having  about  30  beds  each,  but  the  air  space  and  ventilation 
seem  to  be  adequate.  The  bedsteads  are  of  enameled  iron  and 
the  bedding  is  good.  The  capacity  is  130,  and  the  value  of  the 
plant  is  estimated  at  $175,000. 

The  beneficiaries  are  delinquent  white  girls  from  eight  to 
85 


CHILD   WELFARE   WORK    IN    PENNSYLVANIA 

eighteen  years  of  age.  The  Sister  in  charge  said  of  those  only 
eight  or  nine  years  old,  that  in  her  opinion  not  the  girls  but  their 
parents  were  incorrigible.  Some  instruction  and  practice  are 
given  in  cooking,  baking,  general  housework,  sewing,  knitting, 
embroidery,  and  gardening.  Some  garments  and  embroidery  are 
made  for  sale  and  put  upon  the  market  in  Philadelphia. 

The  average  number  of  girls  on  hand  for  the  year  ending 
August  I,  1911,  was  120;  the  amount  paid  in  salaries  was  not 
given;  the  total  for  maintenance  was  $20,551,  or  an  average  per 
capita  of  $171 .  There  were  45  girls  received  during  the  year,  and  a 
total  of  165  in  care.  The  number  of  regular  workers  was  not  given. 

7.     Elmwood  Home 

This  is  a  nonsectarian  cottage  institution  for  delinquent  boys 
from  nine  to  fifteen  years  of  age,  near  North  Springfield,  Erie 
County,  26  miles  from  the  city  of  Erie.  The  site  is  ideally  located 
on  the  shore  of  Lake  Erie,  with  a  fine  stream  flowing  through  the 
farm.  The  one  "cottage"  is  a  remodeled  and  enlarged  two-story 
frame  farm  house;  its  capacity  is  30  boys.  There  are  a  school 
building  and  the  usual  equipment  of  barns,  and  so  forth.  The 
entire  plant  is  valued  at  $14,000.     There  is  no  endowment. 

At  present  only  boys  committed  by  juvenile  courts  in  various 
counties  of  northwestern  Pennsylvania  are  admitted.  When  the 
institution  was  visited,  it  was  overcrowded  with  34  inmates.  New 
cottages  averaging  30  in  capacity  are  to  be  erected  in  the  near 
future.  While  the  present  buildings  are  inferior,  and  the  equip- 
ment not  all  modern,  the  visitor  reported  it  as  "the  most  home- 
like institution  1  have  seen." 

The  average  in  care  for  the  year  ending  May  31,  19 12,  was 
26;  the  expense  for  salaries  was  $1,726,  or  $66  per  capita;  the  total 
cost  of  maintenance  was  $5,063,  or  an  average  per  capita  of  $195. 
There  were  19  new  wards  committed  during  the  year  and  a  total 
of  45  in  care.  Three  regular  workers  were  employed,  or  one  for 
each  8.7  of  the  average  on  hand. 

8.     Magdalen  Society  of  Philadelphia 

This  society  was  founded  in  1800,  and  is  therefore  one  of  the 
oldest  child-helping  institutions  in  the  state.     Its  purpose  is  thus 

86 


HOMES    AND    SCHOOLS    FOR    DELINQUENTS 

defined  in  a  historical  sketch  pubHshed  in  1902:  "To  aid  in 
restoring  to  paths  of  virtue,  and  in  recovery  to  honest  ranks  of 
hfe,  those  unhappy  females,  who,  in  an  unguarded  hour,  have  lost 
their  innocence,  .  .  .  and  are  desirous  of  returning  to  a  life 
of  rectitude."  In  the  113  years  of  its  existence  more  than  3,000 
wayward  girls  have  been  sheltered  and  uplifted  in  this  Christian 
home. 

The  site  consists  of  something  over  an  acre  of  land  on  North 
Twenty-first  Street,  Philadelphia,  surrounded  by  a  high  brick 
wall,  "to  elude  prying  eyes,  and  to  prevent  the  escape  of  discon- 
tented Magdalens."  The  building  is  of  brick,  conglomerate  in 
style,  a  part  of  it  over  one  hundred  years  old.  The  front  part  is 
four  stories  high,  the  middle  section  three  stories,  and  the  rear 
portion  two  stories.  There  are  a  few  modern  conveniences,  but 
as  a  whole  the  building  is  out-of-date  and  unsuited  to  the  society's 
present  use.  The  plant  is  valued  at  $125,000.  As  soon  as  possi- 
ble this  property  will  be  sold  and  a  new  plant  established  in  the 
suburbs  of  the  city.     The  endowment  amounts  to  $91,000. 

Only  delinquent  white  girls  from  twelve  to  eighteen  years  of 
age  are  admitted.  The  capacity  of  the  building  is  50.  There  are 
34  individual  sleeping  rooms  for  the  girls,  and  a  few  have  two  or 
more  beds  each.  Several  special  "bungalow  tents" — structures 
with  wooden  floors,  and  sides  of  wood  to  a  height  of  about  three 
feet,  with  wire  screens  thence  up  to  a  widely  projecting  roof — are 
erected  in  the  rear  of  the  main  building  and  occupied  as  dormi- 
tories by  an  officer  and  some  of  the  girls  all  the  year  through. 
The  general  spirit  and  work  of  the  institution  seem  to  be  admirable. 

The  average  number  of  girls  in  care  for  the  year  ending  Janu- 
ary 31,  191 2,  was  45;  the  expense  for  salaries  was  $2,260,  or  a  per 
capita  of  $50;  the  total  cost  of  maintenance  was  $10,400,  or  an 
average  of  $231  per  capita.  During  the  year,  33  wards  were 
received  and  there  were  a  total  of  74  in  care.  There  were  six 
regular  employes,  or  one  for  each  7.5  of  the  average  on  hand. 

9.     St.  Mary  Magdalen  Asylum  for  Colored  Girls 

This  asylum  is  a  large  and  important  Roman  Catholic  insti- 
tution managed  by  the  Sisters  of  the  Good  Shepherd.  Its  year  of 
founding  was  not  given.     The  site  is  a  suburban  tract  of  about 

87 


CHILD   WELFARE    WORK    IN    PENNSYLVANIA 

45  acres  on  Chew  Street,  Germantown.  There  are  two  large 
stone  buildings  devoted  to  the  uses  of  the  asylum.  The  capacity 
of  one  is  loo,  and  of  the  other,  50  girls.  In  most  respects  the 
equipment  is  modern.  A  third  building  is  devoted  to  the  Sisters 
and  to  the  Magdalens,  an  order  of  reformed  women.  The  esti- 
mated value  of  the  entire  property  is  $217,000.  No  endowment 
was  reported,  but  one  is  believed  to  exist. 

The  beneficiaries  are  delinquent  colored  girls  only,  from  ten 
years  up  to  adults.  They  are  divided  into  two  groups:  (i)  those 
known  to  be  immoral,  and  (2)  what  are  called  the  preventive  cases; 
and  the  two  are  housed  in  different  buildings.  The  dormitories 
are  large  and  have  too  many  beds  for  air  space  and  ventilation. 
The  dining-room  equipment  is  of  the  old  orphanage  type — oil- 
cloth covered  tables,  benches  for  seats,  and  granite-ware  dishes. 

Owing  to  the  reticence  of  the  Sisters,  the  statistics  are  some- 
what imperfect.  No  salaries  were  reported,  and  the  total  cost  of 
maintenance,  $22,500,  was  the  Mother  Superior's  estimate.  The 
average  number  of  girls  in  care  for  the  year  1911  was  97,  and  the 
average  cost  of  maintenance  was  $232  per  capita.  There  were  35 
new  wards  received  and  a  total  of  135  in  care  during  the  year. 
The  number  of  Sisters  and  other  assistants  engaged  in  the  work 
was  not  reported. 

10.     Philadelphia  Protectory  for  Boys 

This  institution  is  located  not  in  Philadelphia  but  at  Pro- 
tectory Station,  about  six  miles  west  of  Norristown  in  Montgomery 
County.  It  was  founded  in  1898  and  is  managed  by  the  order  of 
Christian  Brothers  of  the  Roman  Catholic  church.  The  site  con- 
tains 300  acres,  valued  at  $90,000.  The  building  is  a  three-story 
yellow  brick  structure  and  very  massive  in  appearance.  The 
central  portion  of  the  building  is  a  spacious  hall  leading  to  a  broad 
stairway.  This  section  extends  upward  to  form  a  five-story  tower. 
The  large  dormitories,  containing  200  beds  each,  the  general 
dining  room,  and  other  related  equipment,  are  such  as  are  usually 
found  in  the  great  congregate  institutions.  The  capacity  of  the 
building  is  600  boys. 

The  main  building  and  other  accessory  buildings  are  ar- 
ranged around  a  central  court,  the  inclosed  space  being  about  one 


Industrial    I  raininf^  lor  Boys 


LnJor  the   I  rees 
Pennsylvania    Ikaininc.  Schooi,,   Morganza.     (See  p.  80) 


The  Boys'  Cottage 


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Carter  Republic  Citizens 
William  T.  Carter  Junior   Republic,   Redington.     (See  p.  89) 


HOMES    AND    SCHOOLS    FOR    DELINQUENTS 

acre.  The  buildings  are  estimated  at  about  $710,000,  making  the 
total  value  of  the  plant  $800,000.  No  information  could  be  ob- 
tained in  regard  to  endowment. 

The  Protectory  is  devoted  to  the  care  of  dependent  and 
delinquent  boys  from  eight  to  fifteen  years  of  age,  without  restric- 
tion of  race  or  color.  They  must  be  destitute  or  under  court  order 
to  obtain  admittance.  As  a  matter  of  fact,  most  of  the  boys 
received  are  under  commitment  by  the  Philadelphia  juvenile  court 
for  various  degrees  of  waywardness. 

The  average  number  of  boys  in  care  for  the  year  ending 
December  31,  191 1,  was  460;  the  expense  for  salaries  was  $14,289, 
or  $31  per  capita;  the  total  cost  of  maintenance  was  $60,347,  or 
an  average  of  $131  per  capita.  There  were  284  new  wards  re- 
ceived and  a  total  of  734  in  care  during  the  year. 

II.     W'lLLi.^.M  T.  Carter  Junior  Republic 

The  aim  of  the  William  T.  Carter  Junior  Republic  is  to 
provide  a  child-saving  agency  in  which,  under  careful  supervision, 
in  the  environment  of  a  cultured  nonsectarian  Christian  home,  the 
inmates  are  granted  the  privilege  of  self-government  and  aided  in 
the  development  of  thought  and  industry.  The  institution  was 
founded  in  1898  and  is  located  near  Redington  in  Northampton 
County  on  a  fine  hillside,  with  an  ideal  outlook  over  valley,  stream, 
and  opposite  hills,  and  with  cultivated  fields  on  every  side.  The 
site  contains  186  acres  of  land,  on  which  is  over  a  mile  of  river 
front;  also  an  orchard  of  55  acres  with  over  4,000  fruit  trees. 
There  are  one  two-and-one-half-story  frame  cottage  for  boys,  ca- 
pacity 40;  a  superintendent's  residence,  a  farmer's  house,  and  vari- 
ous other  buildings.  The  property  is  valued  at  $50,000.  No 
endowment  was  reported,  but  there  is  an  annual  gift  from  Mrs. 
William  T.  Carter,  the  founder,  which  for  the  year  191 1  was 
$6,000. 

The  beneficiaries  are  white  Protestant  boys,  dependent  or 
delinquent,  from  twelve  to  eighteen  years  of  age.  Most  of  those 
received  have  been  wayward  or  unmanageable  elsewhere.  Mis- 
conduct leads  to  a  trial  by  the  "citizens,"  the  imposition  of  a 
penalty,  a  part  of  which  is  restraint,  out  of  school  or  work  hours, 
in  the  "jail."     Many  of  the  former  "citizens"  have  "made  good" 

89 


CHILD   WELFARE  WORK   IN    PENNSYLVANIA 

after  leaving  the  Republic,  and  are  holding  honorable  positions  in 
various  parts  of  the  country. 

The  average  in  care  for  the  year  19 ii  was  28;  the  salary 
expense  was  $3,000,  or  $107  per  capita;  the  total  cost  of  mainte- 
nance was  $9,100,  or  an  average  per  capita  of  I325.  Only  19 
new  boys  became  "citizens"  during  the  year  and  the  total  in  care 
was  47.  There  are  seven  regular  employes,  or  one  for  each  four 
of  the  average  of  boys  in  care. 

GENERAL  COMMENTS 

The  total  capacity  of  these  reformatory  institutions  is  3,099. 
The  average  cost  of  plant  per  bed  is  $1,263;  the  total  investment 
is  $4,006,600;  the  average  expense  per  capita  for  salaries  is  $72, 
and  for  the  total  cost  of  maintenance,  $206.  Of  the  maintenance, 
71  per  cent  came  from  the  public  treasuries.  There  are  344  regular 
employes  caring  for  an  average  of  2,646,  and  after  deducting  the 
children  in  institutions  where  the  number  of  workers  is  not  given, 
the  remainder  show  an  average  of  one  worker  for  each  7.0  children 
in  care.  Many  other  very  interesting  facts  and  deductions  may 
be  drawn  from  the  set  of  tables  which  immediately  follow  this 
chapter. 

It  has  been  suggested  by  leading  social  workers  of  the  state 
that  there  is  great  need  at  the  principal  centers  of  population  for 
parental  schools,  or  institutions  for  the  restriction  and  discipline 
of  truants  and  other  mild  delinquents.  Their  field  of  usefulness 
would  lie  between  the  supervised  probation  of  wayward  children 
in  their  own  homes,  and  lengthy  commitments  to  the  correctional 
institutions,  like  the  Glen  Mills  Schools  or  the  Pennsylvania 
Training  School.  The  parental  schools  should  have  public  support 
and  be  under  public  management,  either  as  a  part  of  the  public 
school  system,  which  to  the  writer  seems  most  advisable,  or  as  a 
separate  division  of  the  state's  schools  for  delinquent  children. 
Not  having  made  a  close  study  of  the  situation,  the  suggestion  is 
here  made  without  a  definite  recommendation,  as  this  Department 
favors  additional  institutions  only  in  cases  of  real  necessity. 


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94 


CHAPTER  VIII 
HOMES  AND   TRAINING   SCHOOLS   FOR   DEFECTIVES 

THE  word  defectives,  as  used  in  this  chapter  and  its  related 
tables,  refers  to  the  feeble-minded  and  the  epileptics.  A 
chapter  is  to  follow  on  institutions  for  the  care  and  training 
of  physically  crippled  children.  For  the  mentally  deficient  there 
are  two  institutions  under  public  management  and  two  under  pri- 
vate control.  The  same  reasons  which  led  to  the  assembling  of  the 
1 1  institutions  for  delinquents  apply  for  the  grouping  here  of  the 
four  devoted  to  defectives.  They  are  therefore  named  and  des- 
cribed in  the  order  in  which  they  appear  in  the  statistical  tables 
at  the  end  of  the  chapter. 

I.    Western   Pennsylvania   Institution  for  Feeble-minded 

This  large  and  important  institution  is  located  at  the  town 
of  Polk  in  Venango  County.  It  was  established  in  1893,  but  first 
admitted  children  into  care  in  1897.  The  buildings,  of  which 
there  are  about  25  directly  used  for  the  care  of  inmates  (in- 
cluding two  multiple  cottages  described  later),  are  built  on  the  cot- 
tage plan  and  average  50  in  capacity.  The  entire  capacity  of  the 
institution  is  1,500.  The  superintendent  declared  that  for  the 
best  results  only  1,200  should  be  accommodated.  Yet  at  present 
the  cottages  contain  many  more  than  the  1,500  supposed  to  be  the 
utmost  that  they  should  accommodate.  At  the  time  when  our 
visitor  studied  the  institution,  in  October,  1912,  the  inmates  num- 
bered 1,620.  The  overcrowding  was  permitted  because  of  the 
numbers  needing  such  service  and  the  urgency  of  the  appeals  for 
their  admission.  The  site  includes  1,216  acres  and  the  estimated 
value  of  the  plant  is  $1,260,000. 

While  the  main  part  of  the  institution  consists  of  individual 
cottages  whose  average  capacity  is  50  each,  there  are  two  multiple 
cottages  in  the  rear  of  the  main  group,  in  which  are  kept  the  lower 
8  95 


CHILD    WELFARE    WORK    IN    PENNSYLVANIA 

grades  of  feeble-minded  who  require  more  watchful  attention. 
These  are  known  as  the  custodial  buildings,  one  for  each  sex,  and 
together  they  accommodate  500  inmates.  However,  in  interior 
arrangement  these  buildings  also  are  divided  into  sections  or 
"cottages,"  five  in  a  building,  each  of  which  accommodates  50 
children,  making  a  total  of  250  for  the  building. 

Both  sexes  are  received.  There  are  no  color  restrictions  and 
practically  no  age  limit,  although  preference  is  given  for  the 
admission  of  those  under  twenty  years.  Eighty  per  cent  are 
children,  or  at  least  under  twenty  when  received,  and  nearly  70 
per  cent  of  the  average  number  on  hand  are  under  twenty-one. 
Our  visitor  was  greatly  pleased  with  the  methods  and  management 
of  the  institution,  and  with  its  condition  and  work.  The  one  "fly 
in  the  ointment"  was  its  overcrowded  condition,  which  was  as 
deeply  regretted  by  the  superintendent  as  by  the  visitor. 

For  the  year  ending  May  31,  191 2,  the  average  number  on 
hand  was  1,575;  the  expense  for  salaries  was  f 88,395,  or  $56  per 
capita;  the  total  cost  of  maintenance  was  $318,475,  or  an  average 
per  capita  of  $202.  During  the  year,  195  new  wards  were  received 
and  the  total  in  care  was  1,755.  There  were  256  regular  employes, 
or  one  for  each  6.1  of  the  average  in  care.  Of  the  expense,  91  per 
cent  was  provided  for  from  public  funds. 

2.     Eastern   Pennsylvania    Institution    for   Feeble-minded 

The  Eastern  Pennsylvania  Institution  for  Feeble-minded 
was  founded  in  1903,  but  not  opened  for  service  until  1908.  It  is 
located  about  two  miles  from  Spring  City,  in  Chester  County,  on  a 
site  containing  280  acres  of  land  which  is  elevated  and  should  prove 
salubrious.  There  are  now  five  buildings  for  inmates,  with  an 
aggregate  capacity  of  500.  The  present  value  of  the  plant,  based 
on  the  cost  as  reported  to  the  state  board,  is  $1,451,300. 

As  noted  above,  the  institution  is  comparatively  new  and  is 
as  yet  only  partially  completed.  Originally  it  was  planned  to 
provide  for  1,200  inmates,  but  changes  reduced  the  proposed 
buildings  to  a  capacity  of  800.  There  is  now  provision  for  only 
500.  No  one  can  estimate  when  the  accommodations  for  the 
other  300  will  be  erected.    At  present  only  boys  from  six  to  twenty 

96 


Boys'  Cottage  and  Cottage  Family 


Manual  W  ork  School  Room 
Western  Pennsylvania  Institltion  for  Feeble-minded,  Polk.     (See  p.  95) 


\  iew  of  the  Home 


The  Field  Workers 


\\  omen  and  Girls  at  the  Home 
Passavant  Memorial  Home  for  Epileptics,   Rochester.     (See  p. 


98) 


HOMES    AND    SCHOOLS    FOR    DEFECTIVES 

years  of  age  are  admitted.  When  all  of  the  proposed  buildings  are 
erected,  girls  also  will  be  taken.  All  of  those  received,  and  prob- 
ably 90  per  cent  of  those  now  in  care,  are  under  twenty  years  of 
age. 

The  five  buildings  for  boys  are  of  brick,  fireproof  construc- 
tion, two-story  with  finished  attics  and  basements,  with  capacity 
respectively  for  60,  90,  100,  100,  and  150  inmates.  They  are 
connected  by  "doubled-decked"  corridors  on  the  levels  of  the 
basements  and  first  floors,  which  have  the  appearance  of  elevated 
stone  walks  enclosed  between  parapets. 

The  average  in  care  for  the  year  ending  May  31,  1912,  was 
400.  One  of  the  buildings  was  completed  and  first  occupied 
during  the  year,  immediately  increasing  the  number  to  500.  The 
expense  for  salaries  was  $50,0 1 2,  or  ^  1 2 5  per  capita ;  the  total  cost  of 
maintenance  was  ^113,724,  or  an  average  per  capita  of  S284. 
During  the  year,  178  wards  were  received  and  a  total  of  533  were  in 
care.  There  were  100  regular  employes,  or  one  for  each  four  of  the 
average  in  care.  Of  the  expense,  78  per  cent  was  provided  for 
from  public  funds. 

3.     Pennsylvania  Training  School  for  Feeble-minded 
Children 

This  training  school  for  defectives,  under  private  manage- 
ment but  with  much  of  its  support  from  public  funds,  is  one  of  the 
largest  and  most  important  of  the  semi-public  institutions  in  the 
state.  It  was  established  in  1852,  is  located  at  Elwyn  in  Dela- 
ware County,  and  the  view  from  the  administration  building  look- 
ing toward  Media,  the  county  seat,  only  one  mile  away,  is  superb. 
The  site  contains  340  acres  of  rolling  land,  and  in  some  respects  the 
location  is  ideal;  but  there  is  not  enough  level  ground  to  permit  a 
satisfactory  grouping  of  the  buildings.  The  soil  is  so  rocky  that 
excavation  is  very  expensive,  and  the  obtaining  of  an  adequate 
water  supply  has  been  a  difficult  proposition.  However,  the  insti- 
tution has  charming  views,  the  beauty  of  sloping  lawns,  and  the 
inspiration  of  groves  of  native  trees.  The  plant  is  valued  at 
^770,000;  the  endowment  amounts  to  $250,300;  making  the  total 
property  value  $1,020,300. 

Children  of  both  sexes  are  received,  without  restriction  as  to 
97 


CHILD   WELFARE   WORK    IN    PENNSYLVANIA 

race  or  color,  from  six  years  upward  for  state  cases,  and  a  few  pri- 
vate patients  are  taken  under  six  years  of  age.  The  institution 
prefers  to  receive  none  over  sixteen,  but  does  take  some  who  are 
older.  There  are  12  buildings  devoted  to  inmates,  with  an  aggre- 
gate capacity  of  1,134.  The  buildings  are  of  stone  and  brick,  and 
are  of  various  sizes  and  degrees  of  suitability.  All  are  well  equipped 
and  in  good  repair. 

The  average  in  care  for  the  year  ending  September  30,  191 2, 
was  1,076;  the  expense  for  salaries  was  ^76,972,  or  ^72  per  capita; 
the  total  cost  of  maintenance  was  ^238,182,  or  an  average  per 
capita  of  $221.  During  the  year,  62  wards  were  received  and  a 
total  of  1,133  were  in  care.  There  were  216  regular  employes, 
or  one  for  each  five  of  the  average  in  care.  Of  the  expense,  74  per 
cent  was  provided  for  from  public  funds. 

4.     Passavant  Memorial  Home  for  Epileptics 

This  excellent  home  for  a  very  unfortunate  class  was  founded 
in  1895  and  is  located  at  Rochester,  in  Beaver  County.  It  is  under 
private  management  and  nonsectarian,  but  is  under  the  control 
of  the  Institution  of  Protestant  Deaconesses,  which  is  related  to 
the  Lutheran  church.  The  site  contains  54  acres  and  is  high,  with 
a  beautiful  view  of  the  surrounding  country.  The  institution  has 
a  capacity  of  70;  the  plant  is  valued  at  $129,600.  There  is  no 
endowment. 

The  three  buildings  for  inmates  are  two-story  brick  cottages, 
accommodating  respectively  21,  21,  and  28  patients.  Both  sexes 
are  taken,  from  five  years  up,  without  restrictions  of  race  or  color. 
If  cured  of  the  disease,  or  if  the  mental  condition  becomes  such  that 
others  are  endangered,  dismissal  or  transfer  to  another  institution 
takes  place.  Otherwise  the  patients  are  expected  to  remain  for 
life.  The  rule  for  admission  is  peculiarly  restrictive:  "No  person 
in  whom  the  disease  has  developed  imbecility,  idiocy,  or  insanity, 
or  who  is  suffering  from  contagious  disease,  will  be  admitted  to 
the  Home." 

It  was  difficult  to  estimate  the  proportion  of  minors  in  care, 
but  it  is  probably  about  20  per  cent.  The  average  number  of 
inmates  for  the  year  ending  March  31,  191 2,  was  63.  The  expense 
for  salaries  was  $3,838,  or  |6i  per  capita;  the  total  cost  of  main- 

98 


HOMES    AND    SCHOOLS    FOR    DEFECTIVES 

tenance  was  Si  1,738,  or  an  average  per  capita  of  $186.  During 
the  >ear  five  patients  were  received  and  a  total  of  63  were  in  care. 
There  were  nine  regular  employes,  or  one  for  each  seven  of  the 
average  in  care.  Of  the  expense,  43  per  cent  was  provided  for 
from  public  funds. 

GENERAL  COMMENTS 

The  total  capacity  of  the  four  institutions  dealt  with  in  this 
chapter  is  3,204;  the  average  cost  of  plant  per  bed  is  $1,127;  the 
total  investment  is  $3,861,200;  the  average  expense  per  capita  for 
salaries  is  $70,  and  for  the  total  cost  of  maintenance,  $219.  Of  the 
maintenance,  82  per  cent  comes  from  the  public  treasuries.  There 
are  581  regular  employes  and  an  average  of  3,1 14  inmates  in  care, 
or  one  worker  for  each  5.4  of  the  average  on  hand.  The  study  of 
the  tables  at  the  end  of  this  chapter  will  add  many  other  interesting 
facts  and  deductions. 

The  Pennsylvania  Epileptic  Hospital  and  Colony  Farm, 
located  at  Oakbourne,  Chester  County,  is  an  excellent  private 
institution  for  these  unfortunates.  It  was  not  listed  in  the  homes 
for  defectives  because  it  is  classed  by  the  state  board  of  charities 
as  a  regular  hospital  rather  than  as  a  home.  It  has  a  children's 
cottage,  and  during  the  year  ending  May  31,  1913,  had  a  total  of 
30  children  in  care.  The  institution  possesses  property  valued  at 
$1 10,000,  and  the  expenses  for  the  above  named  year  were  $31,563. 

Many  social  workers  of  the  state  for  years  have  urgently 
appealed  for  additional  facilities  for  the  care  of  defectives,  espe- 
cially girls  of  child-bearing  age,  who  are  now  in  general  or  special 
institutions  or  still  at  large  in  the  various  communities.  As  the 
state  possesses  but  one  institution  for  the  feeble-minded  in  Eastern 
Pennsylvania,  which  at  present  can  accommodate  only  500  in- 
mates and  is  wholly  devoted  to  boys  from  six  to  twenty  years  of 
age,  the  need  for  the  speedy  establishment  of  at  least  one  more 
institution  of  large  capacity  to  be  open  to  the  above  named  class 
of  girls,  is  too  evident  to  require  argument.  The  overcrowded 
condition  of  the  institution  at  Polk  is  indicative  of  urgent  needs 
in  the  western  part  of  the  state.  If  the  present  accommodations 
were  at  once  doubled,  the  provision  for  mental  defectives  would 
still  be  woefully  inadequate. 

99 


CHILD    WELFARE    WORK    IN    PENNSYLVANIA 

In  response  to  these  appeals,  and  to  partially  supply  these 
needs,  the  state  legislature  at  its  session  in  1913  passed  an  act  to 
establish  an  institution  for  feeble-minded  women,  which  was  ap- 
proved by  Governor  John  K.  Tener,  July  25,  191 3.  The  purpose 
of  the  act  is  thus  defined: 

An  act  to  establish  a  State  Village  for  feeble-minded  women;  pro- 
viding for  an  appointment  of  a  board  of  managers  to  select  a  tract  of  land 
for  that  purpose  in  the  State  Forest  reserve,  and  to  erect  and  furnish 
buildings  on  the  same,  and  to  manage  said  institution;  and  for  the  com- 
mitment thereto  of  feeble-minded  females  between  the  ages  of  sixteen  and 
forty-five  years;  and  making  an  appropriation  for  the  purposes  aforesaid, 
also  for  the  expenses  of  maintenance  until  June  i,  191 5. 

The  appropriation  mentioned  was  "approved  in  the  sum  of 
forty  thousand  dollars."  This  will  just  about  pay  the  expense  of 
selecting  a  site  and  securing  plans  from  able  architects.  Appro- 
priations for  the  actual  buildings  must  follow.  Great  bodies  move 
slowly,  and  however  imperative  the  need,  state  institutions  linger 
long  on  the  trestle  board  of  the  architect  and  under  the  hammer  of 
the  contractor.  The  board  of  managers  was  appointed  in  January, 
1914,  and  a  month  later  held  its  first  meeting. 

But  the  need  has  been  recognized  by  the  law  makers  and  the 
executive,  the  thin  end  of  the  wedge  has  been  struck  into  the  heavy 
log  of  public  action,  and  ultimately  a  useful  modern  institution  will 
be  built  and  occupied.  Patience  is  a  virtue  and  so  also  is  vigorous 
effort  to  consummate  a  duly  authorized  work  of  public  utility. 

Leading  social  workers  of  Philadelphia  say  that  the  state 
village  for  feeble-minded  women  is  only  the  initial  expression  of  a 
new  policy  to  which  the  state  is  definitely  committed,  and  which 
includes  both  adequate  care  of  all  feeble-minded  children  and  the 
segregation  of  all  adults  of  this  class,  so  that  they  cannot  reproduce 
their  kind.  Such  a  progressive  program  is  worthy  of  note;  but  as 
its  working  out  will  require  years  of  time  and  millions  of  money, 
it  may  prove  only  the  "iridescent  dream"  of  welfare  workers  in 
whom  the  wish  is  father  to  the  hope. 


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104 


CHAPTER    IX 
INSTITUTIONS   FOR  CRIPPLED   CHILDREN 

THERE  are  six  institutions,  or  parts  of  institutions,  in  the 
state  of  Pennsylvania  devoted  entirely  to  the  orthopedic 
care  and  vocational  and  other  trainingof  crippled  children. 
They  receive  only  the  physically  defective  who  are  normal  in  mind, 
and  are  therefore  entirely  distinct  from  the  institutions  for  the 
mentally  defective  treated  in  the  preceding  chapter.  Four  of 
these  institutions  are  in  Philadelphia  and  two  in  Allegheny  County. 
Most  of  the  physical  defectives  cared  for  in  these  institutions 
are  taken  from  conditions  of  utter  homelessness  or  from  homes  of 
poverty  and  destitution.  They  are,  therefore,  in  the  saddest 
sense  dependents.  A  few  points  in  reference  to  each  of  these 
institutions  will  probably  be  appreciated,  for  crippled  children 
excite  deeper  sympathy  than  perhaps  any  other  class  of  suffering 
humanity. 

I.     Children's  House  of  the  Home  for  Incurables 

This  house,  which  was  established  in  1877,  is  as  the  title 
indicates  only  a  part  of  an  important  nonsectarian  institution 
located  in  the  city  of  Philadelphia.  However,  the  property  of 
the  Children's  House  is  separately  listed  and  an  endowment  is 
specially  devoted  to  it.  The  plant  is  valued  at  ^90,400  and  the 
special  endowment,  $5,500,  making  the  total  value  of  the  property 
195,900. 

While  much  of  the  income  of  the  Children's  House  is  specially 
given,  any  deficiencies  in  meeting  the  expenses  are  met  from  the 
income  of  the  institution  of  which  it  is  a  part.  Its  capacity  is  33. 
The  Children's  House  receives  only  incurable  cripples,  of  both 
sexes,  of  the  white  race,  and  of  any  age  up  to  twelve  years,  with 
no  discharge  limit.  The  service  is  usually  free,  but  in  case  relatives 
are  able  to  meet  part  of  the  expense  a  small  charge  is  made,  the 
maximum  being  $1.00  per  day. 

10; 


CHILD   WELFARE   WORK    IN    PENNSYLVANIA 

The  average  number  in  care  for  the  year  ending  April  15, 
191 1,  was  26;  the  expense  for  salaries  was  ^2,655,  or  $102  per 
capita;  the  total  cost  of  maintenance  was  $10,277,  or  an  average 
per  capita  of  $395.  None  of  the  income  was  derived  from  public 
funds.  There  were  13  regular  employes,  or  one  for  each  two  of 
the  average  in  care. 

2.     Home  of  the  Merciful  Saviour  for  Crippled  Children 

The  Home  of  the  Merciful  Saviour  was  founded  in  1882  and 
is  under  the  auspices  and  control  of  members  of  the  Protestant 
Episcopal  church.  It  is  located  in  Philadelphia  and  is  of  the  cot- 
tage type.  The  capacity  is  50.  The  plant  is  valued  at  $96,800 
and  the  endowment  amounts  to  $200,000,  making  a  total  property 
valuation  of  $296,800. 

The  institution  receives  all  kinds  of  crippled  children  of  both 
sexes,  of  the  white  race,  and  from  two  and  one  half  to  six  years  of 
age,  with  no  discharge  limit  for  girls,  boys  being  transferred  to 
other  institutions  at  sixteen.  The  service  is  usually  free,  but  a 
few  who  are  able  pay  a  little  toward  the  cost  of  care. 

The  average  number  in  care  for  the  year  ending  October  31, 
191 1,  was  50;  the  expense  for  salaries  was  $5,625,  or  $113  per 
capita;  the  total  cost  of  maintenance  was  $16,312,  or  an  average 
per  capita  of  $326.  No  public  funds  were  received.  There  were 
15  regular  employes,  or  one  for  each  3.3  of  the  average  in  care. 

3.     House  of  St.  Michael  and  All  Angels 

The  House  of  St.  Michael  and  All  Angels  was  founded  in 
1887  and  is  located  in  Philadelphia.  It  is  an  Episcopalian  insti- 
tution for  Negroes  only,  with  a  capacity  of  30.  Its  plant  is  valued 
at  $13,600  and  the  endowment  is  $35,000,  making  the  total  prop- 
erty valuation  $48,600. 

The  institution  receives  all  kinds  of  colored  crippled  children; 
boys  from  two  to  nine  years,  and  girls  of  any  age,  from  two  years 
up.  The  boys  are  usually  dismissed  at  the  age  of  ten,  and  the 
girls  at  the  age  of  eighteen.  The  service  is  usually  free,  but  a  few 
parents  or  relatives  pay  $1.00  a  week  toward  the  cost  of  care. 

The  average  in  care  for  the  year  ending  September  i,  191 2, 
was  25;  the  expense  for  salaries  was  $1,217,  or  $49  per  capita; 

106 


Building  and  Plavground 
HoMh  OF  THE  Merciful  Saviour  for  Crippled  Children,  Philadelphia.     (See  p.  io6) 


I  he  Nursery 
House  of  St.   Mich.\el  .and  .m.l  .Angels,   Philadelphia.     (See  p.  io6) 


Entrance 


Front  View 


Rear  View 
WiDENER  Memorial  School,   Philadelphia.     (See  p.  107) 


INSTITUTIONS    FOR   CRIPPLED    CHILDREN 

the  total  cost  of  maintenance  was  $4,719,  or  an  average  per  capita 
of  S189.  No  public  funds  were  received.  There  were  six  regular 
employes,  or  one  for  each  4.2  of  the  average  in  care. 

4.     WiDENER  Memorial  School 

This  great  school  was  founded  in  1906,  and  while  an  indi- 
vidual, or  rather  a  family  benefaction,  is  classed  in  its  religious 
aft'iliation  as  an  Episcopalian  institution.  It  also  is  located  in  the 
city  of  Philadelphia. 

The  Widener  Memorial  School  is  one  of  the  most  remarkable 
institutions  of  the  kind  in  the  world.  The  many  millions  in  the 
plant  and  the  endowment  have  been  given  by  P.  A.  B.  Widener 
and  his  family,  and  now  constitute  a  permanent  memorial  of  his 
deceased  wife  and  other  members  of  his  family,  especially  George 
Widener,  who  was  lost  on  the  ill-fated  Titanic  in  April,  19 12. 
For  \ears  before  his  death,  George  Widener  had  been  interested 
with  his  father  in  the  erection  and  management  of  this  institution, 
and  after  his  death  the  senior  Widener  completed  the  already  large 
endowment  in  order  liberally  to  provide  for  its  work  and  to  estab- 
lish a  permanent  and  useful  memorial  of  his  lost  son. 

The  plant,  setting  a  very  low  valuation  on  the  large  acreage 
tract  in  Philadelphia,  in  reality  a  splendid  private  park,  is  valued 
at  $1,132,000;  the  endowment  is  at  least  $4,000,000,  making  a  total 
property  valuation  of  $5,132,000. 

The  capacity  of  the  school  is  100.  White  children  from  four 
to  ten  years  of  age,  permanently  crippled,  but  not  helpless,  are 
received.  The  age  of  discharge  varies  from  eighteen  to  twenty-one 
years.  Preference  is  given  children  whom  training  may  aid  in  prep- 
aration for  at  least  partial  self-support.  Free  service  and  training 
are  given  to  all. 

The  average  number  on  hand  for  the  year  ending  July  29, 
1912,  was  96;  the  expense  for  salaries  was  842,795,  or  $446  per 
capita;  the  current  expense  was  $107,041,  or  an  average  per  capita 
of  $1,115.  However,  it  should  be  recognized  that  a  part  of  this 
expenditure  is  for  maintaining  costly  buildings  and  grounds  which 
are  a  family  memorial  as  well  as  an  institution  for  the  unfortunate. 
There  are  78  regular  employes,  or  one  for  every  i  .2  of  the  average 
in  care. 

107 


CHILD    WELFARE    WORK    IN    PENNSYLVANIA 

The  beautiful  location,  the  fine  modern  buildings  and  equip- 
ment of  the  plant,  the  skilled  teachers  and  caretakers,  with  the 
best  orthopedic  and  other  specialists  of  the  city  on  the  surgical 
staff,  make  this  institution  as  nearly  perfect  in  possibilities  as  any 
of  its  kind  in  the  world. 

5.     Industrial  Home  for  Crippled  Children 

This  excellent  orthopedic  and  vocational  training  home  was 
founded  in  1902  and  is  located  at  Pittsburgh.  It  is  a  nonsectarian 
cottage  institution  and  has  beds  for  50  children.  The  plant  is 
valued  at  $11 0,1 00  and  there  is  an  endowment  of  $43,000,  making 
a  total  property  valuation  of  $153,100. 

It  cares  for  all  kinds  of  crippled  white  children  of  both  sexes, 
receiving  them  between  the  ages  of  three  and  twelve  years,  with 
no  definite  discharge  limit.  The  service  is  usually  free,  but  for 
those  able  to  pay  there  is  a  maximum  charge  of  $1 .00  per  day. 

The  average  in  care  for  the  year  ending  April  30,  191 1,  was 
45;  the  expense  for  salaries  was  $5,750,  or  $128  per  capita;  the  total 
cost  of  maintenance  was  $1 5,003,  or  an  average  per  capita  of  $333. 
The  institution  received  33  per  cent  of  its  cost  of  maintenance 
from  public  funds.  There  were  16  regular  employes,  or  one  for 
each  2.8  of  the  average  in  care. 

6.  Sewickley  Fresh  Air  Home 
This  institution  is  located  at  Sewickley  in  Allegheny  County, 
and  was  opened  as  a  fresh  air  home  in  1897.  Its  enlarged  work, 
including  orthopedic  service,  dates  from  1909.  It  is  a  nonsectarian 
cottage  institution.  The  plant  is  valued  at  $21,700  and  there  is 
an  endowment  of  about  $5,000,  making  a  total  property  valuation 
of  $26,700.     The  capacity  is  32  children. 

The  institution  receives  all  kinds  of  crippled  white  children 
of  both  sexes,  from  three  to  twelve  years  of  age.  There  are  no 
defined  discharge  limits,  and  children  are  kept  until  they  are  bene- 
fited as  much  as  possible.     The  service  is  free. 

The  average  number  in  care  for  the  year  ending  December 
I,  191 1,  was  27;  the  expense  for  salaries  was  $3,152,  or  $117  per 
capita;  the  total  cost  of  maintenance  was  $10,568,  or  an  average 
per  capita  of  $391.     Only  5  per  cent  of  the  cost  of  maintenance 

108 


INSTITUTIONS    FOR    CRIPPLED    CHILDREN 

was  received  from  public  funds.     There  were  lo  regular  employes, 
or  one  for  each  2.7  of  the  average  in  care. 

GENERAL  COMMENTS 

It  should  be  remembered  that  this  is  a  peculiarly  exceptional 
group  of  institutions,  including  within  themselves  the  combined 
functions  of  the  home  and  the  hospital,  and  in  most  of  them  a  third 
function — that  of  the  vocational  training  school.  The  numbers 
needing  such  care  are  limited,  hence  the  capacity  required  is  com- 
paratively small.  For  obvious  reasons  the  average  expense  for 
salaries  and  the  general  cost  of  maintenance  are  higher  than  in 
ordinary  institutions. 

The  total  capacity  of  the  six  institutions  is  295.  The  average 
cost  of  plant  per  bed  is  $4,965 ;  or,  if  we  omit  the  Widener  Memorial 
School,  because  exceptional,  the  average  for  the  other  five  institu- 
tions would  be  $1,706.  The  total  investment  is  §5,753,100.  The 
average  per  capita  expense  for  salaries  is  $227,  and  the  average  per 
capita  for  maintenance  is  $609;  or,  omitting  the  Widener  as  above, 
we  would  have  for  salaries,  $106,  total  maintenance,  $329.  Only 
3.4  per  cent  of  the  maintenance  came  from  public  funds.  There 
were  138  regular  employes,  or  one  for  each  two  of  the  average 
number  of  children  in  care.  For  other  interesting  facts,  see  the 
tables  at  the  close  of  this  chapter. 


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113 


CHAPTER  X 

SUMMARY  FOR  MISCELLANEOUS  INSTITUTIONS  FOR 
CHILDREN 

TO  collate  and  visualize  some  of  the  facts  and  statistics  re- 
corded in  the  preceding  chapters,  a  summary  has  been 
prepared  of  the  institutions  for  special  classes.  While  the 
tables  speak  for  themselves,  a  few  statements  in  regard  to  their 
form  and  contents,  and  mention  of  some  of  their  principal  items, 
may  be  of  advantage  to  the  reader. 

In  substance,  the  tables  of  the  summary  are  modeled  after 
Sections  A,  B,  and  D  of  the  set  of  four  institutional  tables.  The 
three  sections  of  the  summary  give  in  collated  form  the  best  avail- 
able information  in  regard  to  Pennsylvania's  present  provision  for 
delinquents  and  defectives  so  far  as  they  may  be  presented  in  a 
single  set  of  figures.  They  include  also  the  few  public  institutions 
caring  for  dependents.  It  should  be  remembered  that  some  de- 
fectives are  mixed  with  the  dependents  in  the  county  children's 
homes,  this  fully  justifying  the  title  of  the  part — Miscellaneous 
Institutions  for  Children. 

In  a  few  items  relating  to  the  detention  homes  of  juvenile 
courts,  it  was  found  possible  to  provide  data  which  do  not  ap- 
pear in  the  two  original  tables  for  these  institutions,  the  remaining 
sections  of  the  set  having  been  omitted  for  lack  of  uniform  and 
adequate  information. 

It  will  be  noted  that  the  summary  does  not  include  the  80 
almshouses  and  poorhouses.  These  care  for  children  incidentally, 
and  should  care  for  none  at  all.  Properly  speaking  they  are  not 
child-caring  institutions,  but  are  included  in  the  study  because 
3,000  children  a  year  are  included  among  their  inmates.  As  all 
the  available  information  is  used  in  the  one  general  table,  which 
is  not  itemized  on  the  set-of-four  plan,  it  was  impossible  to  give 
the  almshouses  a  place  in  this  summary. 

There  are  35  institutions  represented  in  the  five  groups  of 
114 


SUMMARY    FOR   MISCELLANEOUS   INSTITUTIONS 

the  summary.  Eighteen  are  under  pubHc  management  and  17 
are  under  private  management.  Only  one  of  the  groups,  the 
detention  homes,  is  wholly  supported  from  public  funds,  meaning 
funds  produced  by  taxation.  Even  the  state  and  county  homes 
receive  a  little  support  from  private  sources;  only  2  per  cent  it  is 
true,  but  it  amounts  to  $2,591.  O"  the  other  extreme  we  fmd  the 
institutions  for  crippled  children  receiving  only  3.4  per  cent  of 
their  support  from  public  funds;  amounting  however  to  55,552. 

The  aggregates  of  investment  and  current  cost  of  mainte- 
nance are  also  of  great  interest.  The  combined  value  of  the  various 
institutional  plants  is  89,548,600.  The  total  capacity  being  7,464, 
the  average  cost  of  plant  per  bed  is  $  i  ,279.  The  aggregate  amount 
of  endowment  is  34.629,800.  The  total  investment  in  these  35 
institutions  is,  therefore,  $14,178,400. 

Carry  the  calculation  a  step  beyond  the  present  summary. 
Considered  in  relation  to  numbers  only,  the  usefulness  of  an  insti- 
tution is  based  not  on  capacity  but  on  the  actual  work  done. 
Therefore,  all  the  more  important  financial  queries  relate  to  the 
average  numbers  in  care.  Dividing  $14,178,400  by  6,793,  we  find 
that  the  average  permanent  investment  per  capita  is  $2,087. 

Again,  assuming  that  the  income  from  the  endowment  aver- 
ages 4  per  cent  on  the  principal,  the  amount  received  from  this 
source  would  pay  only  13  per  cent  of  the  current  expense;  and  at 
4  per  cent  it  would  require  a  total  endowment  of  $39,657,525  to 
produce  $1,586,301,  the  annual  cost  of  maintenance.  This  will 
at  once  answer  the  question  why  the  apparently  large  endowment 
of  various  institutions  must  be  supplemented  by  generous  free-will 
donations  and  payments  from  public  funds. 

Another  interesting  deduction  from  the  summary  relates  to 
salaries.  Dividing  $516,090,  the  total  salary  expense  for  the  five 
groups,  by  1,169,  the  aggregate  number  of  regular  workers,  we  find 
that  the  average  cash  salary  is  $441.  To  this,  of  course,  must  be 
added  the  cost  to  the  institution  of  board  and  lodging,  if  the  real 
salary  is  to  be  ascertained. 

The  average  per  capita  expense  for  salaries  is  S75  and  the 
total  for  maintenance,  $232,  These  rates  for  the  care  of  spe- 
cial classes  are  considerably  above  the  average  per  capitas  in  in- 
stitutions for  dependents,  as  would  naturally  be  expected.     The 

115 


CHILD   WELFARE    WORK    IN    PENNSYLVANIA 

average  of  one  worker  for  each  5.6  of  the  average  children  in  care 
is  very  near  that  later  shown  for  all  the  child-caring  institutions 
of  the  state.  It  may  be  stated  on  the  combined  experience  of  all 
these  institutions  that  on  the  average  there  should  be  a  regular 
employe  for  every  six  children  in  institutional  care. 

While  the  average  in  care  was  only  6,793,  there  were  13,748 
children  in  care  during  the  year.  This  implies  an  average  stay  of 
about  one  year,  as  the  total  is  about  double  the  average  number 
on  hand.  Even  these  institutions  for  special  classes  did  a  large 
amount  of  placing-out  work,  for  764  are  reported  placed  in  family 
homes. 

The  points  of  interest  and  deductions  of  importance  in  both 
the  group  tables  and  the  summary  are  numerous,  but  only  a  few 
can  be  brought  out  in  these  comments.  The  reader  is  invited  to 
make  his  own  study  of  them  to  elicit  matters  of  special  personal 
concern.  This  summary  will  be  joined  to  others  later  in  the  digest, 
for  a  more  general  comparison  and  combination. 


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119 


PART  THREE 
THE  CHILD-CARING  AGENCIES 


As  to  the  children  who  for  sufficient  reasons  must  be  removed  from 
their  own  homes,  or  who  have  no  home,  it  is  desirable  that,  if  normal  in 
mind  and  body  and  not  requiring  special  training,  they  should  be  cared  for 
in  families  whenever  practicable.  The  carefully  selected  foster  home  is  for 
the  normal  child  the  best  substitute  for  the  natural  home.  Such  homes 
should  be  selected  by  a  most  careful  process  of  investigation  and  with  due 
regard  to  the  religious  faith  of  the  child.  After  children  are  placed  in  homes, 
adequate  visitation,  with  careful  consideration  of  the  physical,  mental, 
moral,  and  spiritual  training  and  development  on  the  part  of  the  home- 
finding  agency,  is  essential.— Conclusions  of  the  White  House  Conference, 
Paragraph  3. 

The  essential  conditions  of  successful  placing-out  are  investigation, 
careful  records,  and  thorough  supervision. 

No  society  has  a  moral  right  to  undertake  the  placing  of  children 
unless  it  is  prepared  to  carry  out  this  plan  of  investigation  and  supervision 
generation  after  generation. 

Only  competent  associations  should  be  licensed  by  the  state,  and  they 
should  give  adequate  guarantees  for  the  faithful  prosecution  of  supervision. 
One  such  voluntary  society  in  a  state  is  enough  for  the  general  work. 

Supervision  and  inspection  demand  a  high  order  of  ability,  wide 
travel,  and  energetic  labor,  by  tactful  and  experienced  experts.  It  is  evi- 
dent that  an  association  which  deals  with  only  a  few  cases  in  a  year  can  not 
afford  to  provide  such  agents,  and  is  tempted  to  depend  on  letters  or  irregu- 
lar visits.  It  would  seem  to  be  wise  to  combine  several  of  these  agencies  in 
one  federation  for  the  purpose  of  maintaining  the  kind  and  quality  of  super- 
vision demanded  by  experience. — Charles  R.  Henderson. 


CHAPTER  XI 
GENEIIAL  CHILD-CARING  AGENCIES 

TURNING  now  to  the  private  organizations  and  institutions, 
the  first  to  be  considered  are  the  general  and  local  agencies. 
Most  of  these  bear  the  name  "Children's  Aid  Society" 
and  have  as  their  principal  work  the  placing  of  dependent  children 
in  family  homes,  either  as  paying  boarders,  free  inmates,  or  paid 
workers. 

Five  of  these  agencies  cover  more  than  local  territory,  or  are 
state-wide  in  their  field  and  work.  Hence  they  are  grouped  to- 
gether under  the  title  of  General  Agencies,  for  descriptive  comment 
and  for  tabulation. 

I.     Children's    Aid    Society    of    Pennsylvania 

This  general  agency  was  organized  in  1882  and  has  its  head- 
quarters in  Philadelphia.  Its  territory  is  not  limited  by  its  charter 
and  its  work  may  extend  to  any  county  of  the  state;  but  in  practice 
the  society  confines  its  efforts  to  territory  east  of  the  Allegheny 
Mountains,  or  to  about  three-fifths  of  the  state.  The  development 
of  this  society  has  been  rapid  of  recent  years.  Advanced  ideas, 
modern  methods,  and  trained  workers  have  made  this  the  most 
active  and  progressive  child-placing  agency  in  the  state. 

It  owns  no  plant  except  its  excellent  office  equipment,  valued 
at  85,500,  but  has  a  growing  endowment,  now  amounting  to  ^219,- 
300.     For  the  year  1912  its  expenses  were  $1 14,985. 

During  the  year  it  received  547  new  children,  returned  131 
to  parents  and  friends,  placed  381  in  family  homes,  and  had  at  the 
end  of  the  year  1,796  children  in  care  and  under  its  supervision, 
nearly  all  in  private  families.  About  600  were  in  private  homes 
as  pay  boarders,  about  900  were  in  free  homes,  about  150  were 
receiving  wages,  and  the  remainder  were  in  hospitals,  training 
schools,  institutions,  or  on  probation  with  relatives. 

In  conjunction  with  the  Seybert  Institution  and  the  Penn- 
123 


CHILD    WELFARE    WORK    IN    PENNSYLVANIA 

sylvania  Society  to  Protect  Children  from  Cruelty,  this  society 
has  a  receiving  home,  called  the  Joint  Shelter,  in  one  part  of  the 
Charities  Building  in  Philadelphia.  This  shelter  is  managed  by 
a  joint  agency  of  the  same  organizations  which  is  called  the  Chil- 
dren's Bureau.  Each  of  these  will  receive  separate  treatment. 
By  them  not  only  temporary  care  but  medical  and  psychological 
examinations  are  given  to  various  children  in  direct  care. 

The  Children's  Aid  Society  of  Pennsylvania  now  receives 
children  in  Philadelphia  either  through  the  joint  agency,  or  Chil- 
dren's Bureau,  or  directly  from  the  Pennsylvania  Society  to  Pro- 
tect Children  from  Cruelty;  and  throughout  the  eastern  part  of 
the  state  from  the  juvenile  courts,  the  various  boards  of  directors 
of  the  poor,  and  the  co-operating  local  committees  and  children's 
aid  societies. 

The  society  has  local  committees  in  a  number  of  counties,  all 
of  whose  statistics  are  included  in  those  of  the  central  organization, 
so  that  no  separate  statistics  are  available.  It  also  has  a  working 
alliance,  without  merger,  with  nine  county  children's  aid  societies 
of  Eastern  Pennsylvania.  These  societies  have  their  separate 
organizations  and  statistics  which  are  not  included  in  any  other 
statistical  tables,  and  will  receive  separate  mention  and  tabulation. 
Although  they  are  independent,  they  are  all  co-operating  definitely, 
in  different  degrees,  with  the  Children's  Aid  Society  of  Penn- 
sylvania. 

2.     Home  Missionary  Society  of  Philadelphia 

This  agency  was  founded  in  1835.  Its  work  is  quite  general' 
including  special  religious  work  among  the  poor  and  various  lines 
of  aid  to  the  destitute  as  well  as  the  care  of  needy  children.  Its 
children's  department,  which  is  the  only  one  to  which  this  study 
is  related,  has  in  recent  years  become  increasingly  prominent  and 
effective. 

The  society  possesses  a  fine  property  in  Philadelphia,  about 
one-fourth  of  which  is  held  for  use  as  its  headquarters,  and  the 
remainder  rented  out.  The  combined  plant  and  endowment 
property  is  valued  at  $95,000.  The  income  and  expense  of  the 
children's  department  for  the  year  ending  September  30,  191 1, 
was  $5,809. 

124 


A  Sample  Foster  Home 


GENERAL    CHILD-CARING    AGENCIES 

During  the  year,  48  children  were  received;  four  were  re- 
turned to  kin  and  friends.  49  were  placed  in  family  homes,  and  261 
were  in  famil\-  homes  under  supervision  at  the  close  of  the  year. 

3.     Children's  Aid  Society  of  Western  Pennsylvania      ' 

This  agenc}'  was  organized  in  1885  and  has  its  headquarters 
in  Pittsburgh.  Its  territory  also  is  undefined,  being  practically 
contained  in  certain  counties  where  local  societies  are  organized, 
but  is  mainly  included  in  the  two-fifths  of  the  state  west  of  the 
Allegheny  Mountains.  The  organization  is  peculiar  in  two  ways. 
First,  it  is  an  incorporated  federation  of  23  county  aid  societies, 
each  of  which  is  an  independent  organization  in  its  own  territory. 
These  will  be  treated  in  a  group  by  themselves,  carefully  separating 
their  statistics  from  those  of  their  central  organization.  Second, 
it  has  held  tenaciously  to  the  plan  of  volunteer  work  rather  than 
to  that  of  paid  trained  employes,  and  uses  almost  exclusively  the 
uncompensated  efforts  of  interested  citizens. 

The  federation  possesses  only  one  institution,  the  Girls' 
Industrial  School,  at  Indiana,  Pennsylvania.  This  property  is 
valued  at  817,000  and  is  listed  among  the  nonsectarian  cottage 
orphanages.*  The  Industrial  School  is  used  jointly  by  all  members 
of  the  federation.  The  only  other  property  belonging  to  the  general 
society  is  the  office  equipment,  which  is  valued  at  $1,000.  There 
is  no  endowment.  The  expense  of  the  central  organization  for 
the  year  ending  May  31,  191 3,  was  $2,894. 

The  main  functions  of  this  organization  are  to  bind  together 
the  members  of  the  federation;  to  arrange  for  matters  of  finance, 
especially  a  small  state  appropriation,  the  major  part  of  which  is 
apportioned  among  the  members  of  the  federation;  to  facilitate  the 
exchange  and  disposition  of  children;  and  to  aid  in  matters  relating 
to  the  Girls'  Industrial  School.  Very  little  direct  work  in  the  care 
and  placement  of  children  has  been  carried  on  from  the  central 
office.  During  the  year  of  the  study  only  eight  children  were 
there  handled,  as  distinct  from  those  handled  by  the  local  societies. 
Yet  many  wards  of  the  members  of  the  federation  are  handled  in 
transit  and  many  inquiries  and  applications  are  received  at  the 
central  office  and  passed  on  to  the  local  societies. 

*  See  Table  14,  p.  174. 

125 


CHILD   WELFARE    WORK    IN    PENNSYLVANIA 

It  has  been  thought  best  to  Hst  the  main  work  of  the  Chil- 
dren's Aid  Society  of  Western  Pennsylvania  under  the  name  of 
the  individual  members  of  the  federation.  This  gives  credit  to 
the  local  organizations  and  pictures  their  relative  activity  and 
usefulness.  To  give  only  a  set  of  totals  under  the  federation 
name  would  be  far  less  suggestive  and  satisfactory.  Their  work 
is  outlined  in  the  chapter  entitled  County  Children's  Aid  Societies 
of  Western  Pennsylvania,  and  their  statistics  in  Table  lo,  which 
immediately  follows  that  chapter. 

4.     Children's  Home  Society  of  Pennsylvania 

This  organization,  which  is  related  to  the  National  Chil- 
dren's Home  Society,  was  founded  in  1894  and  has  its  headquarters 
in  Pittsburgh.  Its  activities  are  supposed  to  cover  the  entire 
state,  but  naturally  are  more  pronounced  in  the  western  part. 
Owing  to  various  unpropitious  circumstances,  the  Children's 
Home  Society  of  Pennsylvania  has  had  a  comparatively  slow 
growth. 

The  society  possesses  a  receiving  home  and  equipment  valued 
at  $40,000,  and  has  an  endowment  of  $20,000.  Its  expenses  for 
the  year  ending  March  31,  1912,  were  $20,886.  The  statistics  of 
children  were  omitted  because  they  did  not  conform  to  those  of 
other  organizations.  Like  all  of  the  other  organizations  in  this 
group,  this  society  is  an  exponent  of  the  care  of  dependent  children 
by  placing-out  in  private  families,  as  opposed  to  the  plan  of  massing 
them  for  indefinite  periods  in  institutions. 

5.    Juniata  Valley  Children's  Aid  Society 

This  society  was  organized  in  1881  and  is  located  at  Hunt- 
ingdon, near  the  center  of  the  state.  The  territory  covered  is 
Huntingdon  County,  and  to  some  extent  four  or  five  adjacent 
counties. 

There  is  a  children's  home  valued  at  $10,500,  but  no  endow- 
ment. The  income  and  expenses  for  the  year  ending  May  31, 
1912,  were  $5,476  and  $5,251,  respectively. 

Only  22  children  were  received  during  the  year;  three  were 
returned  to  kin  and  friends,  19  were  placed  in  family  homes,  and  64 
were  in  homes  under  supervision  at  the  close  of  the  year.    The 

126 


GENERAL   CHILD-CARING    AGENCIES 

society  recently  lost  by  death  its  founder,  Professor  David  Em- 
mert;  and  later,  his  son,  who  had  taken  up  his  father's  work,  moved 
away  from  the  community.  The  work  of  late  years  has  been  less 
effective  on  this  account,  and  a  virile  nev/  leader  is  necessary  to 
future  prosperity. 

Combined  Results 

As  a  whole,  these  general  agencies  are  exceedingly  important. 
They  are  the  main  expression  for  the  state  of  the  home-finding  plan 
of  child-care  as  contrasted  with  the  institutional  method.  Aggre- 
gating their  statistics,  we  fmd  that  during  the  year  studied  they 
received  684  children;  had  in  care  or  under  supervision  a  total  of 
2,532;  placed  in  family  homes,  457;  and  at  the  close  of  the  year  had 
in  care  and  under  their  supervision  2,149  children. 

This  does  not  include  the  statistics  of  children  handled  by  the 
Children's  Aid  Society  of  Western  Pennsylvania,  except  the  few 
connected  only  with  its  central  office,  or  those  of  the  Children's 
Home  Society  of  Pennsylvania.  The  figures  for  the  former  will 
appear  in  connection  with  the  county  children's  aid  societies,  to 
prevent  duplication,  and  the  latter  were  entirely  omitted,  as 
stated  above. 

It  is  apparent  that  in  the  fields  and  work  of  these  important 
agencies  the  conditions  are  chaotic.  There  are  indiscriminate 
overlapping  of  territory  and  extreme  differences  in  methods  and 
policy.  The  amalgamation  of  the  five  agencies  into  two  strong 
standard  societies  would  be  the  logical  and  economic  solution  of  the 
problem. 

The  Home  Missionary  Society  of  Philadelphia  could  well 
and  wisely  merge  all  of  its  child-caring  work  into  that  of  the  Chil- 
dren's Aid  Society  of  Pennsylvania,  with  headquarters  in  Phila- 
delphia; and  the  Children's  Aid  Society  of  Western  Pennsylvania 
would  do  well  to  unite  with  the  Children's  Home  Society,  with, 
headquarters  in  Pittsburgh.  The  Juniata  Valley  Society  should 
cease  all  general  work  and  confine  its  efforts  to  the  local  situation; 
as  from  recent  advices  it  now  seems  likely  to  do  in  any  event. 

This  would  unify  and  harmonize  the  general  work  of  child- 
rescue  and  placing-out  all  over  the  state.     It  would  tend  to  im- 
prove the  quality  of  the  work,  make  a  great  saving  in  the  relative 
10  127 


CHILD   WELFARE    WORK    IN    PENNSYLVANIA 

expense,  open  the  way  to  close  co-operation  with  pubhc  officials 
and  all  kinds  of  child-caring  institutions,  make  it  possible  syste- 
matically to  cover  the  entire  territory  and  to  give  adequate  super- 
vision to  all  placed-out  children. 

Pennsylvania's  agencies  should  emphasize  more  positively 
the  advantage  of  the  use  of  high  grade  free  family  homes  for  chil- 
dren permanently  separated  from  their  parents,  whether  by  death 
or  desertion,  or  formal  court  action.  The  advantage  to  a  child  of 
being  reared  in  the  normal  conditions  of  a  good  family  circle  rather 
than  in  the  abnormal  conditions  of  an  institution,  is  now  too  well- 
known  to  need  explanation,  and  so  universally  accepted  as  not  to 
require  argument.  If  the  placing-out  work  is  well  done  by  high 
class  agencies,  and  adequate  after-supervision  is  afforded,  the 
home-finding  plan  is  the  best  method  yet  devised  to  provide  for 
normal  children  not  in  need  of  special  training,  who  are  perma- 
nently homeless.  The  suggested  amalgamation  would  give  to 
Pennsylvania  a  state-wide  system  of  immense  possibilities. 

The  three  sections  of  Table  8,  which  is  placed  at  the  end  of 
this  chapter,  will  give  many  other  interesting  details  concerning 
these  five  general  agencies. 


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CHAPTER  XII 

COUNTY    CHILDREN'S   AID    SOCIETIES   OF    EASTERN 
PENNSYLVANIA 

THERE  are  a  large  number  of  county  and  local  child-caring 
agencies  in  Pennsylvania,  most  of  which  bear  the  name 
of  children's  aid  societies.  For  the  purposes  of  this  study 
they  are  arranged  in  three  groups,  to  the  first  of  which  is  given 
the  title  found  at  the  head  of  this  chapter. 

Nine  county  children's  aid  societies,  all  located  in  the  eastern 
half  of  the  state,  are  included  in  this  group.  While  they  are  inde- 
pendent, they  are  definitely  allied  in  some  degree  with  the  Children's 
Aid  Society  of  Pennsylvania,  the  general  agency  covering  with  its 
agents  and  activities  the  eastern  part  of  the  state. 

Each  of  these  county  societies  has  its  own  organization  and 
records,  and  the  statistics  given  in  the  tables  are  entirely  separate 
from  and  additional  to  those  of  the  general  agency  with  which 
they  are  principally  associated.  The  co-operation  with  the  Chil- 
dren's Aid  Society  of  Pennsylvania  is  mainly  in  case  study,  placing- 
out  work,  and  the  after-supervision  of  placed-out  children. 

An  article  prepared  for  the  State  Dependents  Commission 
by  Edwin  D.  Solenberger,  secretary  of  the  Children's  Aid  Society 
of  Pennsylvania,  indicates  not  only  their  special  relations  to  this 
general  agency  but  also  some  of  the  special  work  done  by  seven  of 
these  county  aid  societies: 

The  Bucks  County  Children's  Aid  Society  receives  and  boards  out 
children  for  the  directors  of  the  poor. 

The  Chester  County  Children's  Aid  Society  receives  and  boards 
out  children  for  the  directors  of  the  poor  and  co-operates  with  the  juvenile 
court. 

The  Dauphin  County  Children's  Aid  Society,  headquarters  Harris- 
burg,  acts  as  placing-out  agent  for  the  county  juvenile  court,  the  county 
poor  board,  various  homes  and  private  charities. 

The  Delaware  County  Children's  Aid  Society  receives  children  from 
132 


COUNTY    CHILDREN  S    AID    SOCIETIES 

the  directors  of  the  poor,  and  from  the  juvenile  court,  and  places  them 
in  homes. 

The  Franklin  County  Children's  Aid  Society  conducts  a  receiving 
home  in  Chambersburg,  and  receives  children  from  the  directors  of  the 
poor,  from  the  juvenile  court,  and  direct  from  parents. 

The  Lycoming  Children's  Aid  Society  is  conducted  as  a  branch  of 
the  Children's  Aid  Society  of  Pennsylvania,  and  maintains  a  receiving 
home  at  Williamsport.  The  children  are  received  from  the  overseers  of 
the  poor,  the  juvenile  court,  and  from  parents  and  relatives.  The  re- 
ceiving home  is  conducted  and  maintained  by  the  local  society,  while  the 
Children's  Aid  Society  of  Pennsylvania  does  all  the  home-fmding  work, 
and  places  out  and  visits  the  children. 

The  Montgomery  County  Children's  Aid  Society  receives  children 
from  the  directors  of  the  poor  and  finds  homes  for  them. 

It  will  be  unnecessary  to  enter  into  further  details  in  regard 
to  the  individual  members  of  this  group.  A  study  of  Table  9, 
following  the  suggestions  given  in  previous  chapters,  will  enable 
the  reader  to  obtain  an  outline  of  the  condition  and  activities  of 
each  of  them. 

All  of  these  societies  favor  and  practice  home-finding  and 
placing-out  in  private  families  rather  than  the  institutional  care 
of  normal  children.  Yet  because  of  the  variety  of  children  for 
whom  they  provide,  they  co-operate  with  many  child-caring  insti- 
tutions, especially  such  as  provide  for  the  wilful  and  wayward, 
and  for  the  mentally  defective  and  those  otherwise  abnormal. 

Each  one  may  be  said  to  be  an  agency  to  seek  out  needy  and 
dependent  children,  to  study  the  best  way  to  secure  their  welfare, 
and  then  to  place  them  with  relatives  or  in  other  families,  or  if 
necessary,  in  some  public  or  private  child-caring  institution. 

Only  two  of  the  nine  societies  own  headquarters  for  their 
work,  the  other  seven  being  housed  in  rented  offices.  The  Frank- 
lin County  society  has  a  receiving  home  valued  at  $20,000,  and 
that  of  Montgomery  County  a  plant  valued  at  $3,500.  A  small 
receiving  home  is  maintained  by  the  Lycoming  society  at  Williams- 
port,  but  no  details  of  its  capacity  or  valuation  have  been  received. 
Three  of  the  societies  have  small  endowments.  About  50  per  cent 
of  the  aggregate  income  is  from  public  funds.  The  nine  societies 
expended  during  the  year  a  total  of  $21,980.     There  were  only  10 

133 


CHILD   WELFARE    WORK    IN    PENNSYLVANIA 

regular  workers  reported,  and  there  is  considerable  dependence 
upon  volunteer  effort. 

The  nine  societies  reported  as  a  year's  work  an  aggregate  of 
240  children  received;  a  total  of  589  in  care  and  under  supervision; 
114  children  placed  in  family  homes;  448  remaining  in  care  and 
under  supervision  at  the  close  of  the  year.  A  surprisingly  large 
portion  of  their  work  is  in  connection  with  the  county  directors  of 
the  poor. 

Many  helpful  and  instructive  comparisons  can  be  made 
between  the  items  in  the  three  sections  of  this  table  and  similar 
items  in  other  agency  groups.  It  is  to  be  feared  that  these  soci- 
eties do  not  yet  fully  understand  the  importance  of  trained  skill 
and  modern  methods.  They  should  have  at  least  three  times  as 
many  paid  workers  as  they  now  have,  or  closer  co-operation  with 
other  agencies,  in  order  to  cover  properly  their  territory  and  popu- 
lation. Like  the  western  group,  in  which  it  is  almost  an  article 
of  religious  doctrine,  most  of  these  county  societies  of  Eastern 
Pennsylvania  still  adhere  to  the  supposed  advantages  of  unsuper- 
vised volunteer  service. 

Possibly  even  before  these  friendly  suggestions  become  public, 
the  influence  of  teaching  and  example  may  have  changed  these 
conditions.  It  is  an  era  when  efficiency  bears  the  banner  in  the 
van  of  progress.  Trained  workers,  who  give  their  entire  time  to 
the  amelioration  of  social  ills,  have  become  a  necessity  in  every 
field  of  philanthropic  effort. 


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CHAPTER  XIII 

COUNTY   CHILDREN'S  AID   SOCIETIES  OF   WESTERN 
PENNSYLVANIA 

ALL  of  the  23  county  societies  comprising  this  group  are  full- 
fledged  organizations,  each  covering  its  own  territory  but 
in  definite  relations  to  all  the  others  through  their  central 
organization,  the  Children's  Aid  Society  of  Western  Pennsylvania. 
As  stated  in  the  chapter  on  General  Child-caring  Agencies,  the 
central  organization  does  little  direct  work  with  children,  but  is  a 
bond  of  federation  and  a  general  clearing  house  for  the  auxiliary 
societies.  These  have  their  regular  officers  and  records,  and 
manage  their  own  local  work,  but  are  united  in  support  of  the 
central  organization  and  of  the  Girls'  Industrial  School  at  Indiana, 
Pennsylvania,  as  before  stated,  the  only  institution  owned  by  the 
federation. 

Each  month  the  reports  and  statistics  of  the  various  societies 
are  forwarded  to  the  central  organization  at  Pittsburgh,  and  with 
some  additions  due  to  central  office  activities,  form  the  regular 
report  of  that  body,  the  Children's  Aid  Society  of  Western  Penn- 
sylvania. For  the  purposes  of  this  study  the  central  office  statis- 
tics have  been  separated  from  those  of  the  23  auxiliary  societies, 
in  order  to  show  the  work  being  done  in  the  several  counties,  the 
classes  of  children  cared  for,  the  relative  cost,  and  the  strength 
of  the  various  auxiliaries.  These  matters  may  be  particularly 
observed  in  the  sections  of  Table  10,  at  the  close  of  this  chapter. 

It  should  be  noted,  as  already  mentioned  in  the  sketch  of  the 
central  organization,  that  these  23  county  societies  depend  almost 
wholly  upon  volunteer  effort.  The  Allegheny  County  society, 
covering  the  city  of  Pittsburgh,  employs  one  paid  agent,  and  the 
Mercer  County  society  and  the  Washington  County  society  each 
employs  a  paid  agent  for  part  time. 

It  is  held  by  these  organizations  that  volunteer  work  is  more 
sympathetic  and  genuine,  and  not  cold,  methodical,  and  machine- 

138 


GiKi.s'   Indlstkiai.  School,   Indiana      (See  p.  138J 
Institution  of  Children's  Aid  Societv  of  W  estern  PennsvKani 


Summer  Camp,  near  Warren.     (See  p.  142) 
Managed  by  Warren  County  Children's  Aid  Society 


'¥4^    h^fM 


COUNTY    CHILDREN  S    AID    SOCIETIES 

like,  as  is  the  work  of  many  paid  empknes.  They  claim  that  any 
benefits  of  training  in  social  service  possessed  by  paid  workers  is 
more  than  made  up  by  the  closer  relations  of  those  who  do  the 
work  because  of  a  love  for  humanity. 

Making  allowance  for  the  excellent  spirit  which  seems  to 
pervade  the  auxiliaries  of  this  federation,  and  the  fact  that  many 
children  are  well  placed  by  these  societies,  it  still  seems  that  this 
federation  could  greatly  advance  its  own  interests  and  more 
efficiently  aid  in  the  care  of  needy  children  throughout  its  territory 
by  utilizing  the  new  and  scientific  methods  of  service  through 
trained  social  workers.  It  would  not  be  necessary  to  give  up 
volunteer  service;  only  to  give  the  advantage  of  trained  leadership 
to  work  that  has  been  sporadic  and  unsystematic. 

Exclusive  volunteer  social  work  has  been  outgrown  in  nearly 
all  parts  of  the  country.  Careful  case  study  of  children  and  fam- 
ilies, according  to  modern  requirements,  is  practically  impossible 
to  untrained  volunteers,  who  give  only  a  brief  time  to  the  work  at 
uncertain  intervals,  as  they  may  be  able  to  do  in  connection  with 
home  or  other  duties.  However  sympathetic  or  devoted  to  the 
cause  of  child  welfare  such  volunteer  workers  may  be,  they  lack 
the  detailed  knowledge,  systematic  methods,  and  general  per- 
spective that  enable  trained  workers  to  see  beyond  the  superficial 
appearance  of  persons  and  homes,  and  to  estimate  them  according 
to  their  real  character. 

The  same  is  true  in  regard  to  the  supervision  of  children  after 
placement.  In  many  cases  the  volunteer  worker  lives  neighbor  to 
the  foster  home  and  finds  it  hard  to  study  matters  without  preju- 
dice. There  is  the  same  lack  of  time,  of  systematic  methods,  and 
of  wide  perspective  that  makes  good  preliminary  case  study  by 
volunteer  service  almost  impossible. 

The  public  subsidies  noted  in  connection  with  the  federation 
probably  are  more  of  a  damage  than  a  benefit.  Sums  ranging 
from  $2 1  to  a  few  hundred  are  at  best  mere  pittances,  when  for 
their  work  such  county  societies  really  need  thousands.  In  all 
likelihood  the  amounts  actually  received  by  the  majority  of  these 
agencies  really  dry  up  springs  of  benevolence  that  otherwise 
would  furnish  many  times  such  subsidies.  Two-thirds  of  the 
organizations  could  refuse  public  aid  to  their  financial  advantage. 

139 


CHILD    WELFARE    WORK    IN    PENNSYLVANIA 

Only  five  of  the  23  organizations  receive  from  public  funds 
I400  or  more;  10  others  receive  between  $100  and  $300  each;  and 
eight  receive  less  than  $100  each  per  year.  Surely  the  friends  of 
such  a  work  would  more  than  make  up  such  small  sums  if  stimu- 
lated by  the  thought  that  it  was  dependent  upon  subscriptions 
rather  than  a  seeker  of  doles  from  the  public  treasuries. 

It  is  evident  that  under  present  circumstances  few  of  the 
auxiliary  societies  can  afford  trained  paid  workers.  Of  the  23 
societies,  only  five  have  annual  incomes  exceeding  ^1,000  each; 
three  more  have  incom^es  ranging  between  $500  and  ^1,000  each, 
and  15  have  incomes  of  less  than  I500  each.  The  employment  of 
trained  workers  on  salaries  is  manifestly  impossible  without  great 
increase  in  the  available  funds. 

It  would  doubtless  be  feasible  to  join  several  adjacent  counties 
into  a  working  district  which  could  pay  a  salary,  and  thus  make  it 
possible  to  put  a  trained  paid  worker  into  the  field.  If  three  coun- 
ties joined  to  form  such  a  district  the  trained  agent  could  divide 
the  time  among  the  counties  according  to  their  special  needs,  doing 
case  work,  supervising  placed-out  children,  stimulating  public 
sentiment,  and  other  similar  duties.  By  this  plan  most  of  the 
objections  to  exclusive  volunteer  service  would  be  obviated  and 
still  leave  ample  room  for  the  uncompensated  activities  of  the 
society  members. 

A  truly  co-operative  spirit  and  great  care  in  the  details  of 
arrangement  would  be  required  to  make  such  district  organiza- 
tions successful.  The  worker  chosen  should  be  one  who  has  had 
some  real  training  in  modern  methods,  and  should  possess  con- 
siderable executive  ability,  so  as  to  be  fitted  for  real  leadership  all 
over  the  territory.  Each  county  society  should  expect  to  do 
"team  work"  with  the  others,  using  the  time  and  efforts  of  both 
paid  and  volunteer  service  for  the  best  interests  of  all  concerned. 

It  is  realized  that  there  is  great  difference  between  the  con- 
ditions in  strictly  rural  sections  and  those  in  the  large  towns  and 
cities.  In  the  country  districts  a  part  of  the  work  can  be  well  and 
wisely  done  by  volunteer  efforts,  although  everywhere  trained 
leadership  is  required  for  high  class  service.  But  in  the  cities  and 
all  places  of  considerable  population,  all  of  the  best  authorities 
now  agree  that  trained  paid  workers  are  absolutely  essential. 

140 


COUNTY    CHILDREN  S    AID    SOCIETIES 

These  23  societies  have  no  headquarters  plants  except  the 
Allegheny  County  organization,  which  has  office  equipment  valued 
at  S400.  The  societies  in  Lawrence  and  Mercer  counties  possess 
small  endowments.  In  the  aggregate  the  group  receive  27  per 
cent  of  their  income  from  public  funds,  almost  three-fourths  of 
the  entire  amount  going  to  five  of  the  23  societies. 

The  total  current  expense  of  the  group  for  the  year  ending 
May  31,  191 3,  was  $22,713.  Of  this  amount  only  4  per  cent  was 
paid  in  salaries,  4  per  cent  in  traveling  expenses,  and  92  per  cent 
was  devoted  directly  to  the  payment  of  board  or  other  care  of 
the  children  served.  During  the  year,  336  new  children  were 
received  and  a  total  of  1,163  were  in  care.  The  various  societies 
secured  the  adoption  of  51  children;  224  were  returned  to  kin  or 
friends,  and  106  were  disposed  of  otherwise.  During  the  year 
about  32 1  were  placed  in  free  or  boarding  homes,  and  nearly  $  1 6,000 
was  paid  out  for  children's  board.  At  the  close  of  the  year,  388 
of  their  wards  were  in  free  homes,  1 1 1  were  in  boarding  homes,  and 
83  were  in  hospitals  or  special  institutions;  a  total  of  782  under 
supervision. 

For  full  particulars  in  regard  to  the  work  of  this  important 
group,  study  the  three  sections  of  Table  10,  at  the  close  of  this 
chapter. 

Note.— In  July,  1914,  the  Children's  Aid  Society  of  Allegheny 
County  retired  from  the  federation  and  merged  with  the  Child  Welfare 
Association  of  Allegheny  County.  The  amalgamated  organization  re- 
tains the  name,  constitution,  and  offices  of  the  Children's  Aid  Society, 
but  accepts  20  members  of  the  association  board  on  its  directorate,  and 
adopts  the  general  method  of  employing  paid  trained  agents  instead  of 
depending  upon  volunteer  service.  The  merger  is  an  auspicious  begin- 
ning of  co-operative  combinations  for  economy  and  efficiency. 


141 


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ro  fO  ro  n  ro  fO  ro  fO  ro  re  r<0  n  nn  ro  ro  re  r<5  ro  r<5  n  rQ  ro 

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cccc  ccB  eecc  a  a  a  a  a  cccccs  c 

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CHAPTER   XIV 
HUMANE  SOCIETIES   FOR  CHILDREN 

SOME  of  the  humane  societies  of  Pennsylvania  confine  their 
attention  and  activities  wholly  to  animals,  others  include 
both  animals  and  children  within  the  scope  of  their  efforts, 
and  a  few  are  almost  wholly  devoted  to  the  protection  of  children. 
From  nine  of  these  organizations  more  or  less  related  to  child- 
caring  work,  statistics  were  obtained  in  sufficient  fullness  to  war- 
rant separate  mention  and  tabulation. 

Two  of  these  are  united  in  plant,  workers,  and  function  with 
charity  organization  societies — the  Lackawanna  County  Humane 
Society  and  Associated  Charities  at  Scranton,  and  the  Luzerne 
County  Humane  Society  and  United  Charities  at  Wilkes-Barre. 
By  a  union  of  forces  these  double  organizations  carry  on  work 
under  one  head  in  each  case.  It  is  to  be  feared,  however,  that 
initiative  and  efficiency  have  been  sacrificed  to  economy  in  this 
combination  of  function  and  effort. 

The  largest  and  most  important  member  of  this  group  is 
the  Pennsylvania  Society  to  Protect  Children  from  Cruelty,  at 
Philadelphia.  This  is  an  organization  so  large  and  extensive  in 
its  v^ork,  and  so  diversified  in  its  functions,  that  proper  classifica- 
tion was  a  hard  problem.  For  some  reasons  it  should  be  classed 
with  the  general  agencies;  but  after  long  consideration  it  was 
finally  placed  in  the  group  similarly  named,  several  of  whose 
organizations  are  doing  on  a  small  scale  what  this  vigorous  and 
modern-spirited  society  is  doing  in  all  of  Eastern  Pennsylvania. 

The  Philadelphia  society  up  to  recent  years  was  operated 
within  narrow  and  formal  legal  lines.  Like  several  other  child- 
caring  organizations  in  that  city,  it  came  under  the  influence  of 
the  modern  progressive  movement,  and  of  late  has  been  favored 
with  the  services  of  a  number  of  men  and  women  of  large  capacity 
and  advanced  ideas.  As  a  result  the  society  has  broadened  its 
activities  and  made  its  work  constructive.     More  thorough  case 

145 


CHILD    WELFARE    WORK    IN    PENNSYLVANIA 

work  was  taken  up,  the  forms  and  records  enlarged,  and  better 
trained  investigators  and  visitors  added  to  the  staff. 

The  result  has  been  a  great  enlargement  of  the  society's 
work,  scope,  and  influence.  It  now  holds  property  valued  at 
^80,000  and  has  an  endowment  of  ^168,100,  or  total  assets  amount- 
ing to  $248,100.  The  expenses  for  191 2  were  $74,949.  In  con- 
junction with  the  Children's  Aid  Society  of  Pennsylvania,  with 
which  it  has  a  close  working  alliance,  special  efforts  are  being  made 
to  systematize  and  relate  the  work  of  the  two  societies  so  that  the 
greatly  increased  amount  of  work  laid  upon  them  may  be  more 
efficiently  done.  This  close  alliance  relates  especially  to  placing- 
out  work  and  supervision. 

The  report  v/as  made  for  the  year  ending  December  31,  191 2. 
The  society  had  under  supervision  at  the  beginning  of  the  year 
2,146  wards,  42  were  on  hand  awaiting  action,  and  447  children 
were  received  during  the  year;  a  total  of  2,635.  During  the  year 
there  v^'ere  173  returned  to  kin  or  friends,  and  187  permanently 
disposed  of  otherwise.  The  society  placed  135  children  in  family 
homes,  and  at  the  close  of  the  year  had  2,258  remaining  under 
supervision.  Those  under  supervision  include  i  ,374  children  living 
with  their  own  parents  and  relatives,  but  by  court  authority 
subject  to  visitation  and  control  by  the  society,  the  remaining  884 
being  in  family  homes  or  institutions,  arranged  for  and  supervised 
by  the  Children's  Aid  Society  of  Pennsylvania  or  the  Children's 
Bureau,  by  the  co-operative  methods  noted  above. 

The  much  smaller,  but  relatively  important  work  of  the 
other  humane  societies  can  be  noted  in  the  three  sections  of  Table 
1 1 .  Next  in  numbers  of  children  handled  is  the  Western  Pennsyl- 
vania Humane  Society,  of  Pittsburgh,  which  cared  for  914  children. 
It  should  be  noted,  however,  that  the  treatment  given  children  by 
the  Pittsburgh  organization  was  of  a  briefer  and  more  incidental 
sort,  only  35  children  being  placed  in  family  homes  during  the  year. 
The  same  is  true  of  most  of  the  other  members  of  this  group. 

Three  of  these  societies  have  buildings  of  their  own  used  as 
headquarters,  with  an  aggregate  plant  value  of  $143,000.  Only 
two  have  endowments.  The  total  value  of  plants  and  endowments 
is  $3 1 9,600.     Six  of  the  nine  agencies  use  rented  offices  or  property. 

146 


HUMANE    SOCIETIES    FOR    CHILDREN 

About  24  per  cent  of  their  income  is  derived  from  public  funds. 
Their  total  expense  for  the  >ear  studied  was  ^100,812. 

While  all  classes  are  handled,  their  principal  work  is  with 
the  willful  and  abnormal,  or  with  children  unfortunate  enough  to 
possess  what  one  worker  calls  "incorrigible  parents."  They 
naturally  receive  and  handle  many  children  from  the  juvenile 
courts,  either  for  permanent  placement  in  families  or  institutions, 
or  to  return  to  relatives  on  supervised  probation. 

During  the  year  studied  which  while  not  exactly  the  same 
for  the  various  members  of  the  group  was  approximately  191 2, 
the  aggregate  number  of  children  handled  and  under  supervision 
was  4,467.  The  societies  placed  279  children  in  family  homes  and 
had  2,586  under  supervision  at  the  close  of  the  year. 

These  figures  show  the  importance  of  the  group  and  the 
extent  of  the  work  done.  Table  1 1  will  repay  further  and  detailed 
study  of  its  three  sections. 

It  may  be  well  at  this  point  to  note  the  agencies  commonly 
known  as  the  Associated  Charities.  There  are  eleven  of  these 
associations  of  charities  or  charity  organization  societies  in  the 
state  more  or  less  directly  connected  with  child-placing,  that  is, 
in  addition  to  what  is  done  for  children  in  the  general  aid  work  of 
the  societies.  These  organizations  keep  no  separate  records  for 
children,  the  work  being  recorded  by  "cases"  or  "families." 
While  in  the  aggregate  they  do  an  immense  work  for  poor  and 
helpless  children,  its  general  nature  and  the  lack  of  records  specially 
relating  to  children  precludes  more  definite  consideration  of  it  here. 
Probably  from  the  standpoint  of  this  study,  their  main  usefulness 
in  child-helping  is  in  referring  matters  relating  to  dependency  to 
the  various  child-caring  agencies  and  institutions,  and  arranging 
for  the  temporary  or  permanent  care  of  destitute  or  homeless 
children  according  to  the  need  in  each  case. 


147 


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150 


CHAPTER   XV 
SPECIAL  CHILD-CARING  AGENCIES 

THIS  group  of  agencies  is  separately  listed  and  tabulated 
because  in  general  the  work  done  is  somewhat  different 
in  type  from  that  of  the  county  children's  aid  societies  or 
other  organizations  covered  in  the  preceding  chapters.  Some  are 
not  connected  at  all  with  placing-out  work,  and  very  little  with 
institutions.  Part  of  them  do  very  little  in  the  direct  handling 
of  children,  and  much  in  supplying  their  needs  through  others. 
One  is  the  placing-out  agency  of  a  county  juvenile  court;  and  some 
do  considerable  placing-out  work,  especially  boarding,  but  more  of 
physical  and  psychological  examination,  investigation  of  cases,  and 
reference  of  children  to  more  general  agencies  and  institutions. 

They  deserve  recognition  as  child-caring  agencies,  and  are 
an  important  link  in  the  chain  of  organizations.  Because  of  their 
peculiarities  and  the  fact  that  many  of  their  activities  are  either 
on  different  lines  or  merged  into  the  work  of  groups  already  stud- 
ied, but  few  coordinate  statistics  could  be  obtained.  These  are 
embodied  in  a  single  general  table,  which  follows  this  chapter. 
For  obvious  reasons  this  table  is  not  included  in  the  summary  of 
the  agency  groups.  A  more  or  less  detailed  explanation  of  their 
work  may  be  found  in  the  following  paragraphs. 

I.     Bureau  for  Jewish  Children  of  Philadelphia  - 

The  Bureau  is  a  branch  or  department  of  an  organization 
called  the  United  Hebrew  Charities,  whose  central  function  is  the 
collection  of  funds  for  the  support  of  the  various  Jewish  institu- 
tions throughout  the  city.  It  was  established  to  provide  a  central 
agency  for  the  investigation  of  cases  of  neglect,  dependency,  or 
delinquency,  and  the  reference  of  such  children  as  required  con- 
tinued care  to  appropriate  Jewish  agencies  and  institutions.  Only 
one  agent  is  employed.  During  the  year  ending  April  30,  1913, 
the  bureau  handled  160  children,  of  whom  86  were  sent  to  institu- 

«5i 


CHILD   WELFARE    WORK    IN    PENNSYLVANIA 

tions  and  74  were  temporarily  assigned  to  agencies  or  placed  in 
private  families.     The  cost  of  the  work  was  not  given. 

2.     Children's  Bureau  of  Philadelphia 

This  is  an  investigating,  recording,  and  locating  organization, 
jointly  supported  and  managed  by  the  Children's  Aid  Society  of 
Pen;isylvania,  the  Society  to  Protect  Children  from  Cruelty,  and 
the  Seybert  Institution  for  Poor  Boys  and  Girls.  In  addition  to 
these  supporting  agencies,  the  following  institutions  and  organiza- 
tions are  affiliated  with  the  Children's  Bureau,  having  a  representa- 
tive, with  voting  power,  on  the  joint  executive  committee  of  the 
bureau:  Nothern  Home  for  Friendless  Children,  House  of  St. 
Michael  and  All  Angels,  Bethesda  Children's  Christian  Home, 
Society  for  Organizing  Charity,  Shelter  for  Colored  Orphans, 
House  of  the  Holy  Child,  Burd  Orphan  Asylum,  Howard  Institu- 
tion, Lincoln  Institution,  and  the  Home  for  Destitute  Colored 
Children.  These  affiliated  organizations  pay  a  nominal  annual 
fee  of  ^10  each.  During  the  year  191 2  the  bureau  made  investi- 
gations, with  considerable  frequency,  for  33  other  children's  organ- 
izations in  the  city,  as  well  as  for  the  social  service  departments  of 
22  hospitals. 

To  provide  for  the  temporary  care  of  children,  a  Joint 
Shelter  or  receiving  home  is  maintained,  under  joint  support  as 
above,  but  under  the  direct  management  of  the  bureau.  The 
bureau  has  extensive  files  and  modern  case  records,  employs  many 
trained  workers  who  are  ready  at  call  to  investigate  cases  of  re- 
ported dependency  or  need,  take  children  into  temporary  care, 
give  them  thorough  medical  and  psychological  examination,  and 
arrange  for  them  to  go  into  the  more  permanent  care  of  relatives, 
agencies,  or  institutions.  All  placing-out  in  family  homes,  of 
children  handled  by  the  bureau,  is  done  by  the  Children's  Aid 
Society  of  Pennsylvania. 

The  Conference  of  Institutions  for  the  Care  and  Training  of 
Children,  and  the  Round  Table  Conference  of  Colored  Institu- 
tions, both  of  which  were  organized  through  the  Children's  Bureau 
and  hold  meetings  at  various  times  throughout  the  year,  have  done 
much  to  further  co-operation  in  children's  work.  The  extended 
statement  in  regard  to  the  Children's  Bureau  is  given  because  it 

152 


SPECIAL    CHILD-CARING    AGENCIES 

is  the  expression  of  real  co-operative  spirit,  and  the  agency  of  a 
group  of  important  organizations  which  have  reached  the  "do- 
things-together"  stage  of  co-operation. 

3.     Juvenile  Aid  Society  of  Philadelphia  • 

A  Jewish  organization  for  the  handhng  of  all  classes  of  chil- 
dren needing  aid  or  requiring  temporary  or  permanent  care.  The 
principal  part  of  its  work  is  the  aid  given  to  children  in  their  own 
families,  but  during  the  year  ending  May  i,  19 12,  the  society 
handled  71  homeless  children,  of  whom  13  were  returned  to  kin  or 
friends,  54  were  put  into  institutions,  and  four  were  placed  in 
private  family  homes.  The  society  expended  in  its  work  during 
the  year  $10,968. 

4.     Wo.men's  Directory  of  Philadelphia. 

The  Directory,  founded  in  1893,  is  an  organization  for 
the  aid  of  mothers  and  children.  It  deals  specially  with  unmarried 
girls  expecting  motherhood,  assists  them  during  the  waiting  period, 
secures  their  admission  to  reputable  and  sanitary  hospitals,  takes 
charge  of  them  when  convalescent,  cares  for  them  and  their  babies 
until  the  mothers  are  able  to  work,  and  then  obtains  positions  for 
them  in  good  families.  Many  of  these  mothers  are  permitted  to 
take  their  babies  with  them  into  service.  The  Christian  influence 
of  the  Directory  workers  is  a  special  feature,  and  is  accompanied 
by  practical  instruction  and  sound  social  advice.  Many  of  the 
unfortunates  are  reclaimed.  There  are  three  regular  employes. 
During  the  year  ending  December  31,  191 1,  the  Directory  handled 
153  children,  the  majority  of  whom  were  children  of  unmarried 
mothers.  Of  these,  10  were  returned  with  their  mothers  to  kin 
or  friends,  11  were  sent  to  institutions,  and  132  were  assigned  to 
agencies  or  placed  in  private  family  homes.  A  large  part  of  the 
132  went  with  their  mothers  where  the  latter  entered  families  as 
domestics.     The  expense  of  the  work  for  the  year  was  $3,138. 

There  are  a  number  of  other  agencies  in  the  state  doing 
similar  work,  but  the  Women's  Directory  is  perhaps  the  most 
important  and  best  known,  and  does  the  largest  work.  No  effort 
was  made  to  cover  this  field  in  detail. 

153 


child  welfare  work  in  pennsylvania 

5.  Allegheny   Widows'    Home   Association   of    Pittsburgh 

This  Association  was  founded  in  1866.  Its  work  is  done  along 
very  nearly  the  same  lines  as  the  modern  system  of  widows' 
pensions.  Rent-free  cottages  and  tenements  are  provided  for 
widows  and  children,  most  of  the  buildings  used  being  owned  by 
the  association.  To  the  home  shelter  is  added  the  chance  for  wage- 
earning  and,  if  necessary,  additional  help.  The  association  pos- 
sesses cottages  and  flats  valued  at  $50,000,  which  are  used  in  this 
work.  There  are  no  paid  agents,  and  the  management  of  the  work 
and  of  the  above  mentioned  properties  is  by  the  volunteer  service 
of  members  of  the  association. 

6.  Child    Welfare    Association    of    Allegheny     County 

The  headquarters  of  the  Association  are  in  the  Juvenile 
Court  Building  at  Pittsburgh.  It  was  formed  July  i,  1913,  by 
a  merger  of  the  Children's  Bureau,  a  department  of  the  Pittsburgh 
Associated  Charities,  and  the  Juvenile  Court  Association  of  Alle- 
gheny County.  Both  of  these  organizations  had  been  handling 
some  children,  arranging  for  their  care  in  institutions  and  placing 
them  in  private  homes,  either  on  board  or  as  permanent  members 
of  families,  and  the  merger  was  effected  for  reasons  of  economy  and 
efficiency.  The  results  of  the  first  six  months,  which  ended  Decem- 
ber 31,  191 3,  were  remarkably  encouraging.  Three  workers  were 
employed,  and  the  expense  for  the  half-year  period  was  $1,767. 
During  this  time  169  children  were  handled,  of  whom  10  M^ere 
returned  to  kin  or  friends,  three  sent  to  institutions,  and  1 56  were 
placed  in  family  homes,  either  on  board  or  permanently.  This 
is  an  excellent  illustration  of  the  spirit  of  the  times  which  seeks 
co-operation  and  efficiency  even  when  personal  and  organized 
interests  must  be  merged  into  movements  for  the  common  good. 
It  is  to  be  hoped  that  other  organizations  will  unite  their  forces 
and  simplify  and  standardize  both  their  methods  and  their  work, 
and  improve  the  quality  of  service  while  lessening  its  relative  cost. 

7.     Society  for  the  Care  of  Jewish  Orphans 

Founded  in  1906  and  located  at  Wilkes-Barre.  Like  the 
Jewish  Aid  Society  of  Philadelphia,  its  main  work  is  to  provide  for 

154 


SPECIAL    CHILD-CARING    AGENCIES 

the  needs  of  destitute  children,  without  removing  them  from  their 
families.  It  has  no  paid  agents.  During  the  year  ending  October 
I,  191 1,  the  society  expended  in  the  care  of  children,  $3,104.  Only 
five  children  were  taken  into  the  society's  care  during  the  year, 
and  all  were  placed  in  institutions. 

As  will  be  seen  from  the  foregoing,  these  seven  special  child- 
caring  agencies  play  quite  an  important  part  in  the  child-caring 
work  of  the  state.  They  have  property  valued  at  $52,500,  nearly 
all  belonging  to  one  association.  They  employ  28  paid  workers 
and  have  an  annual  expense  account  of  $35,689.  While  the  main 
part  of  the  work  of  most  of  them  is  so  related  to  children  in  families 
as  not  to  be  detailed,  yet  we  find  1,602  children  in  direct  care,  of 
whom  443  were  returned  to  kin  and  friends,  438  were  sent  to  insti- 
tutions, and  72 1  were  assigned  to  other  agencies,  or  placed  in  family 
homes.  Table  12,  which  is  a  general  table  giving  the  statistics  of 
these  agencies  in  fuller  detail,  will  be  found  at  the  close  of  this 
chapter. 

Note.— In  July,  1914,  the  Child  Welfare  Association  of  Allegheny 
County  was  amalgamated  with  the  Children's  Aid  Society  of  Allegheny, 
County.  By  the  terms  of  the  merger,  the  methods  of  the  association  are 
accepted  and  continued,  and  20  members  of  its  board  become  members  of 
the  board  of  directors  of  the  society;  but  the  name  and  organization  of 
the  association  will  no  longer  exist.  The  united  corporation  accepts  the 
name  and  constitution  of  the  Children's  Aid  Society,  and  the  execu- 
tive secretary  of  the  late  association  is  in  charge  of  the  amalgamated  work. 
The  offices  of  the  association  are  abolished,  and  those  of  the  society  (at  303 
People's  Bank  Building,  Pittsburgh)  are,  at  least  for  the  present,  the  head- 
quarters of  the  united  orgaHizations.  The  society  under  its  new  manage- 
ment is  "committed  to  the  principle  that  the  routine  functions  of  investi- 
gations, reporting  on  investigations,  placement  of  children,  supervision 
of  children  placed,  and  the  general  direction  of  field  work,  shall  be  per- 
formed by  such  paid  trained  workers  as  shall  be  employed  by  the  board 
of  directors;  and  further,  that  the  scope  of  volunteer  capacity  shall  be 
determined  bv  the  board." 


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156 


CHAPTER   XVI 
SUMMARY    FOR   CHILD-CARING  AGENCIES 

THE  totals  in  the  four  principal  groups  of  child-caring  agen- 
cies have  been  assembled  to  provide  a  summary  of  their 
relations  and  statistics.  The  special  child-caring  agencies, 
which  are  recognized  and  listed  because  of  their  important  work, 
have  a  less  extended  range  of  activities,  so  that  only  one  limited 
general  table  was  made  of  their  statistics.  Therefore  they  are 
not  given  a  place  in  the  summary. 

The  four  groups  contain  an  aggregate  of  46  organizations. 
Comparatively  few  of  them  own  headquarters,  but  the  value  of 
the  various  plants  is  §261,400.  Although  largely  a  development 
of  recent  years,  they  have  altogether  an  endowment  of  §516,700. 
In  plant  and  endowment  the  aggregate  is  §778,100,  or  more  than 
three-quarters  of  a  million. 

The  work  done  is  mainly  in  behalf  of  dependents,  except  in 
the  humane  societies,  whose  activities  are  more  general.  There 
are  1 17  paid  employes  and,  as  stated  in  previous  chapters,  the  num- 
ber is  too  small  in  some  of  the  groups. 

The  division  of  current  expense  into  three  parts  brings  out 
some  interesting  comparisons.  The  expense  for  salaries  ranges 
from  4  to  45  per  cent,  and  for  the  four  groups  averages  26  per  cent. 
The  traveling  expense  ranges  from  nothing  to  9  per  cent,  and  for 
the  four  groups  averages  6  per  cent.  The  general  expense  ranges 
from  50  to  92  per  cent,  with  a  general  average  of  68  per  cent.  A 
very  large  portion  of  the  last  item  is  expended  in  paying  the 
board  of  children  either  in  family  homes  or  in  institutions.  The 
total  annual  expense  account  of  §295,330  shows  that  a  large  work 
is  being  done  by  these  agencies. 

It  is  when  we  note  the  aggregate  numbers  of  children  hand- 
led that  the  real  importance  of  these  organizations  appears.  They 
began  the  year  with  5,403  children  under  supervision  and  262  on 
hand  awaiting  placement.  During  the  year,  3,086  children  were 
received. 

157 


CHILD   WELFARE    WORK    IN    PENNSYLVANIA 

This  made  a  total  of  8,75 1  in  care  and  under  supervision  dur- 
ing the  year.  As  several  hundred  children  belonging  to  one  agency 
were  entirely  omitted  because  of  faulty  statistics,  the  above 
number  is  probably  less  than  the  facts  warrant,  allowing  for  all 
duplications.  It  is  a  remarkable  thing  that  these  agencies  of  one 
state  should  have  relations  with  about  9,000  children  in  a  single 
year. 

Their  activities  are  equally  significant  when  the  details  of 
the  disposition  of  these  children  are  considered.  During  the  year, 
1,525  were  returned  to  kin  or  friends  and  1,134  Put  into  institu- 
tions, or  otherwise  disposed  of,  making  a  total  of  2,659  that  passed 
entirely  from  their  care.  There  remained  at  the  end  of  the  year 
217  on  hand  awaiting  placement  and  5,875  under  supervision  in 
family  homes,  hospitals,  and  institutions.  There  were  1,171 
children  placed  in  private  homes,  either  on  board  or  as  permanent 
members  of  the  family  during  the  year. 

The  term  "direct  care"  implies  individual  handling,  arrange- 
ment of  location,  or  some  definite  provision  for  children.  Super- 
vision in  many  cases  involves  only  correspondence  and  visitation 
without  removal  or  relocation.  All  good  agencies  give  careful 
supervision  to  their  located  wards.  Most  of  this  work  is  done  by 
field  agents  who,  to  save  expense,  make  their  visits  in  connection 
with  trips  in  behalf  of  new  wards,  either  on  their  reception  or  their 
placement  in  homes  or  institutions.  Therefore,  many  agencies 
make  no  specific  record  of  the  cost  of  supervision,  and  all  of  it  is 
charged  in  with  other  expenses.  The  per  capita  cost  of  agency 
work  is  therefore  necessarily,  but  somewhat  unjustly,  based  on 
the  number  in  direct  care. 

With  this  explanation  in  mind,  it  is  of  interest  to  note  that 
these  four  groups  of  agencies  during  the  year  of  the  study  recorded 
3,348  children  in  direct  care.  The  total  expense  of  the  work  was 
^295,330,  and  ignoring  the  cost  of  supervision,  because  inextricably 
mixed  with  the  work  of  direct  care,  we  find  these  agencies  ex- 
pended an  average  of  ^88  for  every  child  handled. 

Any  who  desire  to  do  so  may  make  more  detailed  study  of 
the  agencies  and  a  closer  comparison  of  the  relative  work  of  the 
diff'erent  groups  by  carefully  examining  Table  13,  which  immedi- 
ately follows  this  chapter. 

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PART  FOUR 

PRIVATE  INSTITUTIONS  FOR 
DEPENDENTS 


It  is  not  necessary  to  discuss  the  place  of  the  society  and  the  place  of 
the  institution  in  child-helping  service,  or  to  encourage  criticism  which 
serves  no  good  purpose.  It  is  enough  to  say  that  there  is  a  place  and  a  work 
for  every  society  and  every  institution  engaged  in  work  with  and  for  children, 
not  afraid  of  public  official  scrutiny  concerning  resources,  methods  and 
accomplishments.  For  others  than  these  there  ought  to  be  no  place  in  any 
state. — C.  E.  Faulkner. 

By  the  'Orphan  asylum  system'  is  meant  the  bringing  up  of  children 
from  childhood  to  young  manhood  and  womanhood,  in  an  asylum  or  chil- 
dren's home.  For  many  years  this  was  regarded  as  the  most  desirable 
system  of  dealing  with  neglected  children.  If  a  child  was  left  orphaned, 
abandoned  or  homeless  the  idea  prevailed  that  a  substitute  must  be  pro- 
vided for  the  home,  and  it  was  believed  by  many  that  the  substitute  could 
be  made  better  than  the  real  article. 

Many  orphan  asylums  still  cling  to  the  ancient  policy  of  bringing  up 
children  to  manhood  and  womanhood,  and  to  ancient  methods  of  building 
and  administration;  but  a  very  large  number  have  broken  away  from  their 
ancient  traditions,  and  have  ceased  to  bring  up  children.  They  have  either 
entered  actively  into  the  placing  of  children  in  family  homes,  or  they  have 
become  temporary  refuges  for  half-orphans  and  other  children  needing  tem- 
porary care. 

There  still  survive  orphan  asylums  where  children  are  kept  in  uniform, 
with  shaved  heads;  where  they  do  not  have  individual  clothing,  but  have 
clothing  distributed  to  them  promiscuously  from  week  to  week;  where  lice 
and  bedbugs  prevail;  where  food  is  meager  and  of  inferior  quality;  where 
good  and  willing  girls  are  kept  scrubbing  floors  month  after  month  because 
they  do  not  complain;  where  sleeping  rooms  are  unsanitary;  where  thin  straw 
beds  let  the  tender  bodies  down  upon  hard  wooden  slats;  where  cuffs  and 
abuse  are  more  freely  distributed  than  kind  words. 

But  on  the  other  hand  there  are  children's  homes  and  orphan  asylums 
where  tenderness  and  love  prevail;  where  mirth  and  jollity  are  contagious; 
where  weary  heads  find  a  pillow  on  gentle  bosoms;  where  generous  diet  is 
prescribed  by  medical  advisers  and  served  with  liberal  hands;  where  foster- 
homes  are  constantly  sought  as  a  better  haven  than  even  the  good  and  home- 
like shelter  of  such  an  institution. — Hastings  H.  Hart. 


CHAPTER   XVII 
PRIVATE    INSTITUTIONS   FOR   DEPENDENTS 

WITH  this  division  of  the  private  organizations,  we  reach 
the  main  body,  in  so  far  as  property  invested  and  num- 
bers of  children  in  care  are  concerned.  There  are  153 
orphanages  and  homes  doing  the  usual  work  implied  by  the  titles. 
There  are  also  22  institutions  for  the  combined  care  of  adults  and 
children,  most  of  them  doing  a  work  similar  to  that  of  the  Florence 
Crittenton  Homes,  seven  of  which  are  here  listed.  These  make  a 
total  of  175  institutions  of  various  classes  under  private  manage- 
ment, engaged  in  the  more  or  less  permanent  care  of  children, 
nearly  all  of  whom  are  classed  as  dependents. 

In  this  study  attention  is  everywhere  given  to  the  type  of 
institution  under  observation.  Owing  to  the  lack  of  uniformity 
in  the  ideas  and  declarations  of  social  workers  on  this  point,  it  was 
necessary  at  the  outset  to  settle  the  principles  and  definitions  re- 
lating to  type  for  the  guidance  of  the  visiting  agents. 

As  a  general  basis  the  following  was  accepted:  "The  'cottage' 
type  of  institution  is  indicated  by  limited  groups  of  children,  in 
small  buildings,  and  by  care  and  spirit  in  imitation  of  ordinary 
home  life.  The  'congregate'  type  is  indicated  generally  by  large 
buildings,  and  the  care  of  children  en  masse,  with  little  individual 
treatment." 

For  the  purpose  of  this  study  the  detailed  definitions  given 
below  were  prepared  and  made  the  basis  of  decisions  in  regard  to 
type.  In  over  90  per  cent  of  the  institutions  the  type  was  easily 
settled  by  them,  the  remainder  being  either  compounds  of  the  two 
types  or  institutions  which  could  be  classified  "cottage"  in  every- 
thing but  the  larger  numbers  provided  for  in  the  buildings.  Even 
if  considered  as  only  tentative  and  suggestive,  their  successful  use, 
with  scarcely  an  objection  from  any  source,  in  a  campaign  cover- 
ing about  250  institutions  of  many  varieties  and  kinds,  is  a  strong 
item  in  their  favor. 

165 


CHILD    WELFARE    WORK    IN    PENNSYLVANIA 
I.      COTTAGE    INSTITUTIONS 

Class  A.  An  institution  composed  of  one  or  more  cottages,  each 
containing  no  more  children  than  can  be  given  personal  and  individual 
care  permeated  with  a  real  family  spirit,  the  number  not  to  exceed  30  in 
any  one  cottage,  and  in  which  each  cottage  is  a  complete  domestic  unit, 
with  its  own  kitchen  and  dining  room. 

Class  B,  An  institution  composed  of  several  cottages,  each  con- 
taining no  more  children  than  can  be  given  personal  and  individual  care 
permeated  with  a  real  family  spirit,  the  number  not  to  exceed  50  in  any 
one  cottage,  where  the  cooking  is  done  in  a  general  kitchen,  and 
the  meals  served  either  in  cottage  dining  rooms  or  in  a  general  congre- 
gate dinmg  room. 

II.      CONGREGATE    INSTITUTIONS 

Class  A.  An  institution  in  which  children  are  gathered  in  one  or 
more  large  buildings,  the  minimum  average  in  care  exceeding  50  children, 
and  in  which  the  care  is  en  masse  rather  than  individual. 

Class  B.  An  institution  having  usually  only  one  main  building, 
the  average  in  care  not  exceeding  50  children,  the  physical  equipment, 
spirit,  and  methods  adapted  to  mass  care,  and  the  treatment  of  the  chil- 
dren collective  rather  than  individual. 

In  other  matters  a  definite  basis  was  arranged  in  order  to 
secure  uniformity  in  the  study.  In  property  values,  the  present 
value  of  the  property  for  the  purposes  of  the  institution  was 
sought,  allowing  a  reasonable  amount  for  depreciation  of  the 
buildings  by  time  and  use.  The  capacity  of  an  institution  was 
set  at  the  number  of  children  for  whom  sleeping  accommodations 
were  provided. 

With  reference  to  placing-out  matters,  it  was  necessary  to 
be  very  clear  and  positive,  as  the  officers  of  some  of  the  institu- 
tions are  very  vague  in  their  ideas  in  regard  to  such  work.  It 
was  decided  that  "an  institution  is  said  to  do  'placing-out  work' 
when  it  selects  homes,  or  secures  positions  including  homes,  for 
any  number  of  its  minor  wards,  and  by  authority  of  its  guardian- 
ship officially  arranges  for  their  location  in  such  homes,  either  as 
paying  boarders,  free  inmates,  or  paid  workers." 

It  was  also  decided  that  no  children  are  to  be  counted 
"placed,"  either  on  pay  board  or  in  free  homes,  who  remain  in 
these  homes  a  shorter  period  than  a  week.  To  place  with  "kin" 
is  to  place  with  relatives  of  the  first  and  second  degrees — parents, 

166 


PRIVATE    INSTITUTIONS    FOR    DEPENDENTS 

grandparents,  brothers,  or  sisters.  To  "place  out  in  families"  is 
to  place  dependent  or  delinquent  children  in  the  families  of  others 
than  relatives  within  the  second  degree,  for  the  purpose  of  provid- 
ing homes  for  such  children. 

In  addition  to  the  schedule  the  study  called  for  a  written 
"story"  covering  the  general  characteristics  of  the  institution. 
These  stories  included  as  many  as  possible  of  the  following  items: 
Description  of  location  and  building;  interior  conditions;  fire- 
escapes;  size  and  ventilation  of  dormitories;  kinds  of  beds  and 
bedding;  sort  of  dining  room,  seats,  tables,  dishes,  and  napery; 
apparent  amount  and  quality  of  food;  cleanliness  and  sanitation; 
clothing  of  children;  spirit  manifested,  whether  kindly  or  rigorous, 
homelike  or  institutional;  and  impression  as  to  efforts  to  overcome 
institutionalism  and  develop  initiative  in  the  children.  Frequently 
the  stories  brought  out  very  important  facts  that  otherwise  would 
not  have  been  recorded. 

The  groups  treated  in  Part  Two,  containing  the  institutions 
for  special  classes,  were  easily  tabulated  together,  each  being 
nicely  accommodated  on  a  single  page;  but  because  of  the  number 
of  orphanages  and  children's  homes,  these  institutions  were  neces- 
sarily differently  arranged.  In  apportioning  the  175  institutions 
for  dependents  for  tabulation  it  was  found  convenient  to  divide 
them  into  six  groups,  and  as  stated  in  the  chapter  on  the  statis- 
tical tables,  four  consecutive  sections  are  necessary  for  the  40 
points  figured  for  each  group. 

The  cottage  institutions  are  first  divided  into  two  sections; 
the  nonsectarian  and  those  under  some  church  management. 
Of  the  nonsectarian  cottage  institutions,  there  are  24,  found  in 
Table  14;  and  of  the  general  church  cottage,  there  are  19,  found  in 
Table  15. 

The  congregate  institutions  are  similarly  divided.  First, 
the  nonsectarian  congregate  institutions,  53  in  number,  constitute 
Table  16.  There  are  27  Catholic  congregate  institutions  of  this 
class,  and  they  are  grouped  together  in  the  four  sections  of  Table 
17.  There  are  30  institutions  under  the  management  of  other 
religious  denominations,  and  these  are  grouped  together  in  the 
four  sections  of  Table  18.  These  make  a  total  of  43  cottage  insti- 
tutions and  1 10  congregate  institutions  in  this  class. 

167 


CHILD   WELFARE    WORK    IN    PENNSYLVANIA 

The  22  institutions  for  the  combined  care  of  adults  and  chil- 
dren form  a  group  by  themselves.  The  general  form  of  the  four 
sections  of  the  table  is  retained,  and  a  few  points  added  to  bring 
out  their  combined  capacity,  while  confining  the  main  statistics 
of  inmates  to  those  of  children.  These  institutions  are  recorded  in 
Table  19. 

Putting  the  matter  into  tabular  form,  the  six  sets  of  tables 
are  outlined  as  indicated  below: 

TABLE  H.— INSTITUTIONS  FOR  DEPENDENTS  BY  TYPE  AND 
MANAGEMENT 


Table 


Type  and  management 


Cottage  Institutions 

14  Nonsectarian  orphanages  and  homes 

15  General  church  orphanages  and  homes 


Total 


Congregate  Institutions 

16  Nonsectarian  orphanages  and  homes 

17  Catholic  orphanages  and  homes 

18  General  church  orphanages  and  homes 


Total 


Institutions  for  combined  care  of  adults  and  children 
(cottage,  13;  congregate,  9) 


Grand  total 


It  will  be  understood  that  the  basis  upon  which  these  divi- 
sions are  made  is  simply  convenience  in  arranging  the  tables,  and 
has  absolutely  nothing  to  do  with  the  quality  or  importance  of  the 
institutions  so  listed.  It  may  also  be  stated  that  it  was  thought 
best  not  to  divide  into  tables  according  to  location,  but  simply 
on  the  basis  of  the  type  and  function  of  the  institution,  whose 
place  in  the  table  is,  however,  determined  alphabetically  by  its 
location. 


CHAPTER  XVI 11 

NONSECTARIAN    ORPHANAGES   AND    HOMES 
Cottage  Type 

THE  private  orphanages  and  children's  homes  have  usually 
been  established  to  supply  an  apparent  local  demand,  or 
to  accomplish  the  seemingly  needed  work  of  some  religious 
body.  In  many  cases  there  has  been  insufficient  study  of  the  local- 
ity, and  inadequate  financial  basis  for  the  undertaking.  The 
result  has  been  an  unwarranted  duplication  of  institutions  in  some 
places,  many  of  which  have  continued  to  exist  without  much 
enlargement,  and  with  a  management  so  conservative  as  to  be  far 
behind  the  demands  of  the  present  age.  In  some  cases  dependents, 
defectives,  and  delinquents  are  still  found  in  the  same  building, 
inadequately  provided  for,  according  to  modern  methods;  and 
crowded  into  small  and  poorly  equipped  institutions. 

The  nonsectarian  orphanages  and  children's  homes  of  the 
cottage  type  include  24  institutions,  located  in  1 5  counties  of  the 
state.  They  vary  greatly  in  capacity;  from  eight  in  the  East- 
brook  Home  for  Destitute  Negro  Children,  in  Lawrence  County, 
to  1 50  in  Christ's  Home  for  Homeless  and  Destitute  Children,  at 
Warminster,  Bucks  County.  The  total  capacity  of  the  24  insti- 
tutions is  1,210. 

In  the  matter  of  management  and  the  executive  ability  of 
officers  there  is  also  great  variation,  not  always  in  favor  of  the 
larger  and  richer  institutions.  It  is  fair  to  say  that  a  larger  pro- 
portion of  the  "cottage"  than  of  the  "congregate"  institutions 
have  been  touched  by  the  advanced  ideas  of  modern  social  move- 
ments. It  is  also  true  that  some  institutions  formerly  "congre- 
gate" have  become  "cottage"  under  these  same  ideas  and  impulses. 

Owing  to  the  number  of  institutions  in  this  and  the  other 
groups  of  orphanages  and  homes,  detailed  description  of  each  is 
impracticable.  The  statistical  tables  have  been  made  with  special 
reference  to  bringing  out  details  on  all  important  matters,  and  may 

169 


CHILD    V/ELFARE    WORK    IN    PENNSYLVANIA 

be  referred  to  in  regard  to  finance,  workers  and  wards,  and  many 
of  their  varied  relations.  A  selected  few  of  the  institutions,  how- 
ever, are  given  special  mention,  in  order  that  the  reader  may  the 
more  readily  catch  some  of  the  salient  points  elaborated  in  the 
tables. 

The  Pruner  Home  for  Friendless  Children,  at  Bellefonte, 
Center  County,  was  established  in  1908  to  care  for  "full  orphan" 
children.  It  occupies  a  small  two-story  and  attic  frame  dwelling, 
poorly  adapted  to  institutional  work,  and  possesses  an  endowment 
of  $60,000.  With  a  capacity  of  15,  the  average  in  care  for  the 
year  ending  July  i,  1912,  was  only  four  children.  As  the  expenses 
of  maintenance  were  $4,000,  the  per  capita  cost  was  $  i  ,000.  There 
were  four  regular  employes,  or  one  for  each  child  of  the  average  in 
care. 

The  Hershey  Industrial  School  was  founded  in  1910  and  is 
located  on  a  farm  of  over  500  acres  at  Hershey,  in  Dauphin  County, 
the  farm  serving  as  a  home,  a  base  of  instruction,  and  an  endow- 
ment. The  value  of  the  property  is  $203,300;  the  capacity  is  40. 
The  beneficiaries  must  be  white  boys,  and  when  received  must  be 
between  four  and  eight  years  of  age.  There  are  10  regular  em- 
ployes, or  one  for  each  four  boys  in  care.  The  expense  for  salaries 
for  the  year  ending  July  31,  191 3,  was  $8,075,  or  an  average  of 
$202  per  capita;  the  entire  expense  for  maintenance  was  $20,332, 
or  a  total  per  capita  of  $508.  The  intention  is  to  erect  more  build- 
ings and  increase  the  capacity,  so  as  to  reduce  the  per  capita  cost, 
and  afford  agricultural  training  to  a  larger  number  of  dependent 
boys. 

As  stated  in  the  chapter  on  the  General  Child-Caring  Agen- 
cies, and  in  that  on  the  County  Children's  Aid  Societies  of  West- 
ern Pennsylvania,  the  small  but  excellent  institution  at  Indiana, 
Indiana  County,  called  the  Girls'  Industrial  School,  is  the  prop- 
erty and  under  the  management  of  the  Children's  Aid  Society  of 
Western  Pennsylvania.  It  is  used  and  supported  jointly  by  the 
23  members  of  the  federation.  The  capacity  of  the  plant  is  15 
girls  and  it  is  valued  at  $17,000.  There  are  two  workers  and  an 
average  of  12  girls  in  care. 

The  Thaddeus  Stevens  Industrial  School  was  founded  in 
1909  as  a  memorial,  and  the  property  near  Lancaster,  in  Lancaster 

170 


\iL-\v  of  the  School 


.Manu:il    I  rainin-^  Shop 
HEKSiibY   Industkial  School,  Hershey.     (See  p.  170) 


^^^^^^ 

mi    ^ 

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Main  Ikuldirii 


iifl 

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fiTiin 

™W||n 

mm^  \ 

^ 

^ 

Cottages  for  Housing  Students 
Thaddeus  Stevens  Industrial  School,  Lancaster.     (See  p.  170) 


NONSECTARIAN    ORPHANAGES  AND    HOMES 

County,  is  valued  at  S300.000.  A  board  of  managers  has  entire 
control  of  the  plant  and  policy.  Dependent  boys  sixteen  to 
eighteen  years  of  age  are  received  and  are  trained  in  agriculture 
and  the  trades.  The  capacity  is  88,  and  the  average  in  care  55. 
There  are  18  regular  employes,  or  one  for  every  three  boys.  The 
expense  for  salaries  for  the  year  ending  May  31,  191 2,  was  ^12,000, 
or  S218  per  capita;  the  entire  maintenance  expense  was  $25,000,  or 
a  per  capita  cost  of  $455. 

The  Seybert  Institution  for  Poor  Boys  and  Girls  was  founded 
in  1884  and  does  a  varied  work  of  child-helping  in  Philadelphia 
and  Eastern  Pennsylvania.  In  conjunction  with  the  Children's 
Aid  Society  of  Pennsylvania  and  the  Philadelphia  Society  to 
Protect  Children  from  Cruelty,  it  supports  and  manages  the  Chil- 
dren's Bureau  and  the  Joint  Shelter  for  Children.  For  the  year 
ending  December  31,  191 1,  it  provided  toward  the  support  of  the 
bureau  S6,6o2,  and  toward  the  support  of  the  shelter,  87,500. 

A  large  part  of  its  work  consists  of  a  high  class  home  and 
training  school  for  the  general  development  of  children  not  suited 
for  immediate  placement  in  family  homes  or  not  eligible  for  care 
in  other  institutions.  This  plant,  called  the  Children's  Village,  is 
located  at  Meadowbrook,  a  suburb  of  Philadelphia,  on  a  320-acre 
tract  of  land,  which  some  years  ago  cost  895,000,  but  now  has  a 
sale  value  of  more  than  $1,000  per  acre.  On  this  tract  are  six 
cottages  for  white  children  and  two  for  colored  children,  with  an 
assembly  room,  print  shop,  store,  club  room,  school  house,  superin- 
tendent's and  employes'  residences,  barns,  dairy  and  milk  houses, 
and  other  outbuildings,  all  of  them  new  or  remodeled,  modern  in 
equipment. 

The  actual  cost  of  the  buildings  and  improvements  to  date 
is  $266,300;  adding  the  cost  of  the  land,  $95,000,  the  present  valua- 
tion of  the  Children's  Village  property  for  institution  purposes  is 
$361 ,300.  Its  aggregate  capacity  is  1 36,  giving  a  per  capita  plant 
valuation  (on  the  basis  of  cost)  of  $2,657.  The  average  number  of 
children  in  care  during  191 1  was  80.  There  were  39  employes,  or 
one  for  each  two  children  in  care.  The  cost  of  salaries  was  $ 1 8,837, 
an  average  of  $235  per  capita;  and  the  entire  cost  of  maintenance 
was  $46,676,  or  an  average  of  $583  per  capita.  The  above  net 
expense  related  to  the  care  of  children  in  the  Village  and  was 

171 


CHILD    WELFARE    WORK    IN    PENNSYLVANIA 

obtained  by  deducting  $102,061,  expended  for  permanent  improve- 
ments, and  $14,102,  devoted  to  the  Children's  Bureau  and  the 
Joint  Shelter,  from  the  entire  annual  expense  of  the  institution. 

The  J.  Edgar  Thomson  School  for  Girls  founded  in  1882  for 
the  benefit  of  the  daughters  of  Pennsylvania  Railroad  employes 
killed  in  service,  and  who  must  be  white  girls  between  four  and 
sixteen  years  of  age,  is  a  peculiarly  interesting  institution.  It  is 
said  that  thirty  years  after  its  establishment  the  institution  is 
practically  unknown  even  to  the  army  of  employes  it  is  intended 
to  help.  Its  plant  is  rented,  and  it  uses  a  rented  property  for  a 
summer  colony.  The  endowment  is  valued  at  $1,826,000.  The 
only  capacity  is  that  of  the  present  rented  building  and  the  per 
capita  plant  valuation  refers  only  to  equipment.  The  average  in 
care  for  the  year  ending  December  31,  1 9 11 ,  was  24 ;  the  expense  for 
salaries  was  $3,481,  or  $145  per  capita;  the  total  expense  for  main- 
tenance was  $12,872,  or  $536  per  capita.  There  were  1 1  regular 
employes,  or  one  for  each  2.2  children  of  the  average  in  care.  As 
at  4  per  cent  this  endowment  will  produce  over  $72,000  per  annum, 
of  which  under  present  conditions  only  one-sixth  is  being  used, 
some  way  should  be  found  to  better  utilize  this  great  gift  for  the 
welfare  of  unfortunate  children. 

One  institution  of  this  group,  the  Pittsburgh  Home  for 
-  Babies,  claims  to  have  solved  the  problem  of  the  institutional  care 
of  bottle-fed  infants.  The  managers  declare  that  by  a  system  of 
trained  nurses,  careful  feeding,  and  proper  segregation,  they  have 
done  away  with  excessive  mortality  and  are  institutionally  rearing 
strong  and  healthy  babies.  Their  records  seem  to  substantiate 
their  claim  in  regard  to  the  avoidance  of  mortality,  as  no  deaths 
have  occurred  in  the  past  two  years.  They  also  show  great  im- 
provement over  former  conditions  in  this  institution,  and  the 
advance  has  been  accomplished  by  the  use  of  modern  and  scientific 
methods.  The  Home  expends  $112  per  capita  of  the  average 
number  in  care  for  salaries,  and  $260  per  capita  for  total  mainte- 
nance. It  employs  12  workers  for  an  average  of  23  babies,  or  a 
nurse  for  each  two  of  them.  This  may  account  in  part  for  their 
success. 

The  section  on  comparative  statistics  shows  that  the  average 
expense  per  capita  for  salaries  in  this  group  is  $95,  and  because  of 

172 


NONSECTARIAN    ORPHANAGES    AND    HOiMES 

the  exceedingly  high  per  capita  expense  of  some  of  the  institutions, 
the  average  for  total  maintenance  is  $317.  It  should  be  noted 
that  these  figures  are  based  not  on  capacity  but  on  actual  average 
number  in  care.  It  should  also  be  remembered  that  in  new  insti- 
tutions the  expense  per  capita  is  necessarily  much  higher  than  in 
those  of  similar  type  which  are  well  established. 

In  his  book  on  Cottage  and  Congregate  Institutions,  Dr. 
Hastings  H.  Hart  has  included  a  special  study  of  10  cottage  insti- 
tutions.* He  found  in  these  the  minimum  cost  of  plant  per  capita 
was  $869,  the  maximum,  ^1,716,  and  the  general  average  was 
$1,181.  The  average  value  of  plant  per  capita  in  this  Pennsylvania 
group  was  $1,542. 

The  aggregate  capacity  of  the  group  is  1,210,  but  the  average 
on  hand  only  942;  indicating  that  these  institutions  at  least  are 
not  overcrowded,  as  an  average  of  268  beds  are  unoccupied.  There 
are  241  regular  employes  caring  for  the  average  of  942  children,  or 
less  than  four  children  per  worker.  As  will  be  seen  later,  this 
number  of  children  per  employe  is  much  lower  than  the  average 
for  the  whole  class  of  private  institutions,  which  runs  above  six 
children  per  worker. 

Many  other  interesting  facts  and  comparisons  can  be  drawn 
from  the  four  tables  which  follow  this  purposely  abbreviated  text. 
And  from  these  general  tables  and  certain  special  tables  to  be  incor- 
porated in  later  chapters  of  the  text,  it  is  hoped  that  all  essentials 
of  a  successful  study  will  be  developed. 

*Hart,  Hastings  H.:  Cottage  and  Congregate  Institutions.  Russell  Sage 
Foundation  Publication,  New  York,  Charities  Publication  Committee,  19 10. 


173 


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CHAPTER  XIX 

GENERAL  CHURCH  ORPHANAGES  AND  HOMES— 
Cottage  Type 

THERE  are  lo  denominations  and  19  institutions  repre- 
sented in  this  group.  The  term  "general  church"  is 
used  because  of  the  wide  variety  of  reHgious  interests 
included,  and  as  being  broader  than  "sectarian"  or  "denomi- 
national." 

These  institutions,  being  clearly  sectarian,  receive  no  public 
funds;  although  some  institutions  in  other  groups,  equally  under 
church  control,  are  favored  with  appropriations  by  the  public 
authorities.  Most  of  them  are  small  both  in  capacity  and  means, 
but  at  least  four  are  especially  strong,  well  equipped,  and  liberally 
financed  institutions. 

The  Baptist  church  is  represented  by  two  orphanages,  one 
in  Philadelphia,  a  very  fine  institution,  and  the  other  at  West 
Newton,  which  is  new  and  as  yet  weak  and  small.  The  Lutheran 
church  maintains  one  cottage  institution  in  Pittsburgh,  besides 
several  congregate  institutions  in  other  locations  within  the  state. 
The  Hebrews  have  three  institutions  of  this  type,  one  in  Phil- 
adelphia, one  in  Erie,  and  one  in  Pittsburgh.  The  Mennonites 
are  represented  by  one  institution,  located  at  Center  Valley,  Le- 
high County.  The  Methodist  Episcopal  church  has  three  cottage 
orphanages,  one  in  Philadelphia  and  two  in  Pittsburgh.  The 
Protestant  Episcopal  church  has  two  institutions  of  this  type,  both 
in  Philadelphia.  The  Presbyterian  church  has  two  cottage  insti- 
tutions in  Philadelphia,  one  for  babies  and  one  for  older  children. 
The  Reformed  church  maintains  two  homes,  one  at  Littlestown, 
in  Adams  County,  and  one  at  Greenville,  in  Mercer  County.  The 
Roman  Catholics  have  but  two  cottage  institutions  in  the  state, 
one  at  Harbour  Creek  and  one  at  Philadelphia;  although  as  shown 
later  they  possess  27  of  the  congregate  type,  as  well  as  several  for 
delinquents  and  some  for  the  combined  care  of  adults  and  children. 

178 


A  Familv  of  CArh 
Bapmst  Ori'iianage,   I^hiiadelphia.     (See  p.  179) 


Main  Building  and  One  Cottage 


General  Dining  Room 
Methodist  Episcopal  Orphanage,  Phiiladeiphia.    (See  p.  179) 


GENERAL  CHURCH  ORPHANAGES  AND  HOMES 

The  United  Brethren  have  one  institution,  located  at  Quincy,  in 
FrankHn  County. 

The  aggregate  value  of  the  plants  included  in  this  group  of 
cottage  institutions  under  church  control  is  $1,538,000;  the  aggre- 
gate capacity  is  1,063  children;  the  average  value  of  the  plant  per 
capita  is  $1,447;  the  aggregate  of  endowment  is  $2,084,300,  of 
which  sum  two  institutions  own  $1,500,000. 

As  in  the  nonsectarian  group,  a  few  of  these  general  church 
cottage  institutions  are  given  special  mention  to  call  attention  to 
some  principal  points  in  the  statistical  tables.  These  are  selected 
because  they  represent  the  best  modern  type  of  cottage  orphanage. 
It  happens  that  all  but  one  are  located  in  Philadelphia. 

The  Baptist  Orphanage  of  Philadelphia  was  founded  in 
1879.  It  has  an  excellent  cottage  plant  in  the  western  part  of 
the  city,  valued  at  $310,000,  with  an  endowment  of  $137,000. 
The  capacity  of  the  institution  is  125,  making  the  per  capita  cost 
of  the  plant  $2,480.  The  average  in  care  for  the  year  ending  March 
31,  1912,  was  112;  the  expense  for  salaries  was  $3,655,  or  $33  per 
capita;  the  whole  expense  for  maintenance  was  $15,660,  or  $140 
per  capita.  The  orphanage  had  18  regular  employes,  or  one  for 
each  6.2  children  of  the  average  number  in  care. 

The  Methodist  Episcopal  Orphanage  of  Philadelphia  was 
founded  in  1879.  It  is  a  high  class  cottage  institution  with  a  plant 
valued  at  $520,000,  including  the  splendid  site  of  22  acres  adjoin- 
ing Fairmont  Park,  and  $1,200,000  in  endowment.  The  capacity 
is  240,  making  a  per  capita  plant  valuation  of  $2, 1 67.  The  average 
in  care  for  the  year  ending  March  i,  191 2,  was  143;  the  expense 
for  salaries  was  $7,807,  or  $55  per  capita;  the  total  expense  for 
maintenance  was  $34,166,  or  $239  per  capita.  There  were  23 
regular  employes,  or  one  for  each  6.2  children  of  the  average  num- 
ber in  care. 

The  Presbyterian  Orphanage  of  Pennsylvania,  at  Philadel- 
phia, was  founded  in  1877.  It  has  a  fine  cottage  plant  valued  at 
$180,000,  and  an  endowment  of  $300,000.  The  capacity  is  143, 
making  the  per  capita  cost  of  the  plant  $1,259.  The  average  in 
care  for  the  year  ending  January  15,  1912,  was  129;  the  expense 
for  salaries  was  $7,831,  or  $61  per  capita;  the  entire  expense  for 
maintenance  was  $32,928,  or  $255  per  capita.     The  institution 

179 


CHILD    WELFARE    WORK    IN    PENNSYLVANIA 

had  2  1  regular  employes,  or  one  for  every  6.1  children  of  the  aver- 
age number  in  care. 

it  will  be  noted  that  in  most  of  the  items  above  given  these 
three  institutions  are  very  close  together.  In  fact,  together  they 
constitute  almost  a  standard  for  the  denominational  cottage  or- 
phanage. All  are  strong,  well-equipped,  modern  institutions, 
largely  imbued  with  the  family  spirit,  and  giving  to  their  wards 
the  best  type  of  institutional  care.  They  are  perhaps  a  little  slow 
to  send  out  their  children  to  the  normal  conditions  and  develop- 
ment of  family  homes,  but  the  high  quality  of  care  and  training 
provided  makes  this  objection  less  important  than  it  is  for  insti- 
tutions of  lower  grade. 

The  St.  Paul's  Orphans'  Home,  of  the  Pittsburgh  Synod  of 
the  Reformed  Church,  is  another  typical  institution.  It  began 
its  work  in  1867,  at  Butler,  Pennsylvania,  where  the  Home  con- 
tinued until  1909.  Then  having  felt  the  trend  of  the  modern 
movement  toward  the  "cottage"  plan,  it  removed  to  its  present 
location,  near  Greenville,  Mercer  County,  and  on  a  300-acre  farm 
established  an  excellent  modern  plant.  The  main  building  con- 
tains besides  the  administrative  offices  and  some  officers'  quarters, 
accommodations  for  20  children.  There  are  two  three-story  brick 
cottages,  with  a  capacity  of  30  children  each,  and  a  farm  house 
with  beds  for  eight  children.  The  total  capacity  is  thus  88.  The 
plant  is  valued  at  $\  10,000,  and  two  more  cottages  are  to  be  erected 
in  the  near  future.  The  present  endowment  is  ^26,000.  The 
salary  expense  for  the  year  ending  May  31,  191 2,  was  $3,208,  or 
$38  per  capita;  the  total  expense  for  maintenance  was  $16,041, 
or  an  average  per  capita  of  $191.  The  Home  has  13  workers,  one 
for  each  6.5  of  the  average  in  care. 

The  fact  that  these  four  institutions  have  been  so  fully  no- 
ticed must  not  be  taken  as  implying  that  no  others  in  the  group 
are  equally  worthy.  But  for  space  limitations,  at  least  two  or 
three  more  would  have  special  mention. 

The  institutions  of  this  group  have  a  total  capacity  of  1,063, 
with  an  average  of  810  in  care,  or  only  about  76  per  cent  of  the 
capacity.  All  but  one  of  the  19  institutions  in  this  group  care 
for  dependents  only.  The  one  exception,  the  Catholic  Boys' 
Home,  at  Harbour  Creek,  admits  also  delinquents.     Two  of  them 

180 


GENERAL  CHURCH  ORPHANAGES  AND  HOMES 

receive  girls  only,  three  boys  only,  and  the  remainder  care  for  chil- 
dren of  both  sexes.  Eighteen  receive  white  children  only, — two  of 
these  confine  their  work  to  Jewish  children, — and  one  has  no  color 
restrictions.  For  other  matters  of  interest  the  four  sections  of 
Table  15,  which  immediately  follow  this  chapter,  will  warrant 
careful  stud\-. 


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CHAPTER   XX 

NONSECTARIAN  ORPHANAGES  AND  HOMES— 
Congregate  Type 

THE  53  institutions  which  are  treated  in  this  chapter  are 
nonsectarian  orphanages  and  homes,  and  are  Hsted  alpha- 
betically by  location. 

Taking  the  state  as  a  whole,  many  of  the  congregate  orphan- 
ages and  homes  are  rapidly  modernizing  their  work,  methods, 
and  equipment.  Others  have  made  some  real  changes,  tending  to 
bring  them  into  line  with  the  advanced  social  work  of  today,  but 
are  held  back  either  by  the  conservatism  of  boards  of  managers 
or  by  lack  of  means  to  go  forward.  To  all  such  the  visits  of  trained 
inspectors,  anxious  to  raise  the  standard  of  care  and  methods,  are 
much  to  be  desired.  Such  visits  can  have  greatly  increased  influ- 
ence if  the  inspectors  meet  not  only  the  executives  and  active  work- 
ers, but  also  individually  or  collectively  the  members  of  the  vari- 
ous boards. 

It  also  should  be  stated  that  there  are  still  a  large  number  of 
orphanages  and  homes  that  have  not  sensibly  responded  to  modern 
impulses.  They  continue  to  use  most  of  the  old-fashioned  meth- 
ods, supposed  to  have  been  left  behind  the  door  of  the  new  cen- 
tury. Some  of  them  still  clothe  the  children  in  uniforms,  or  from 
a  mass  of  clothing  packed  away  by  sizes  in  bulk,  and  later  care- 
lessly fitted  to  individuals.  Some  have  large,  unventilated, 
ill-equipped,  and  often  crowded  dormitories.  Many  have  rough 
tables  and  benches  in  the  dining  rooms,  with  neither  table  cloths 
nor  napkins,  and  use  metal  dishes  and  rusty  cutlery  and  spoons. 
Many  continue  the  old  method  of  marching  in  lines  at  the  tap  of 
a  bell,  silence  at  meals,  and  mass  care  generally;  while  some  of 
the  institutions  have  discarded  in  part  these  old  practices,  pre- 
senting at  this  time  a  chaos  of  the  old  and  of  the  new  and  better 
methods.     Even  in  this  there  is  a  promise  of  better  things  to  come. 

There  is  a  wide  diversity  in  the  current  expenses  of  the  insti- 
i86 


NONSECTARIAN    ORPHANAGES    AND    HOMES 

tutions  in  this  group.  One  gives  %6  as  the  per  capita  cost  of 
maintenance,  and  from  this  minimum  the  expenses  rise  until  the 
maximum  is  reached  in  one  that  expends  $594  per  capita. 

The  53  institutions  of  this  group  are  located  in  27  different 
towns  and  cities,  13  of  them  being  in  Philadelphia,  10  in  Pitts- 
burgh, and  four  in  Harrisburg.  The  first  to  be  established  was 
the  Orphan  Society  of  Philadelphia,  which  was  founded  in  18 14 
and  retains  its  headquarters  within  the  city,  although  its  institu- 
tion is  now  at  Wallingford,  in  Delaware  County. 

A  strong  and  typical  institution  of  the  nonsectarian  con- 
gregate class  is  the  Home  for  the  Friendless  at  Pittsburgh,  founded 
in  1861.  It  possesses  a  downtown  plant  valued  at  $250,000,  and 
an  endowment  of  $300,000.  The  capacity  is  175  and  the  per 
capita  valuation  of  the  plant  is  $1,429.  The  average  in  care  was 
151.  The  expense  for  salaries  for  the  year  ending  May  31,  191 2, 
was  $8,300,  or  $55  per  capita;  the  total  cost  of  maintenance  was 
$27,825,  or  $184  per  capita.  There  were  24  regular  employes,  one 
for  every  6.3  children  of  the  average  in  care. 

The  most  remarkable  institution  of  the  entire  division  is 
Girard  College,  founded  in  1830  and  generously  endowed  under 
the  will  of  Stephen  Girard.  The  advance  in  property  values,  and 
the  accumulation  of  earnings  beyond  the  amount  needed  for  the 
annual  expenses  of  the  college,  have  made  this  institution,  devoted 
to  the  care  of  "poor  white  male  orphans  between  the  ages  of  six 
and  ten  years,"  the  wealthiest  corporation  of  its  kind  in  America. 

In  a  tabulation  of  Philadelphia  child-caring  institutions, 
prepared  by  Homer  Folks  in  1892,  we  find  Girard  College  credited 
with  assets  amounting  to  $10,236,000.  In  1912  the  plant  of  the 
institution  was  listed  at  $5,000,000  and  the  endowment  at  $29,000,- 
000;  a  total  of  $34,000,000.  The  capacity  of  the  institution  is 
1 ,528,  or  a  per  capita  plant  valuation  of  $3,272.  The  average  num- 
ber on  hand  for  the  year  ending  December  31,  1911,  was  1,493; 
the  expense  for  salaries  was  8140,600,  or  $94  per  capita  for  the 
average  in  care;  the  total  expense  for  maintenance  was  $576,896, 
or  $386  per  capita.  Even  this  large  amount,  $576,896,  is  but 
little  more  than  one-third  of  what  the  endowment  produces.  There 
were  434  regular  employes,  or  one  for  each  3.4  boys  of  the  average 
in  care.     These  remarkable  figures  modify  materially  the  per  cap- 

187 


CHILD    WELFARE    WORK    IN    PENNSYLVANIA 

ita  averages  of  even  so  large  a  group  as  53  institutions;  therefore, 
it  seems  best  to  make  the  averages  without  including  Girard  Col- 
lege and  add  a  total  showing  averages  including  it. 

Special  mention  also  should  be  made  of  the  Joint  Shelter 
for  Children,  a  receiving  home  for  a  group  of  agencies  in  Philadel- 
phia. This  temporary  home,  which  has  a  capacity  for  only  25 
children  but  is  constantly  receiving  and  sending  out  children  for 
the  agencies  it  serves,  briefly  cared  for  1,563  children  in  the  course 
of  the  year  at  an  average  cost  of  ^18  per  capita,  the  basis  being 
the  entire  number  handled.  This  "wayside  inn"  is  omitted  in 
making  up  the  general  per  capita  averages  of  the  group,  which  are 
based  on  the  average  number  in  care. 

The  aggregate  capacity  of  the  53  institutions  included  in 
this  group  is  5,377;  the  total  amount  invested  in  their  various 
plants  is  ^8,944,500,  or  an  average  cost  of  ^1,709  per  bed,*  on  the 
basis  of  capacity;  the  endowments  total  ^32,351,600.  The  entire 
amount  permanently  invested  in  these  53  institutions  is  ^41,296,- 
100. 

There  are  954  regular  employes  and  an  average  of  4,483  chil- 
dren in  care,  or  one  worker  for  each  4.8  children.  The  group  ex- 
pends $306,571  in  salaries,  or  an  average  of  $67  per  capita;  the 
total  for  maintenance  is  $1,134,866,  or  an  average  per  capita  of 
I251.  The  amount  of  public  funds  received  is  $138,021,  which  is 
only  12  per  cent  of  the  expense  for  maintenance. 

It  may  be  of  interest  to  note  that  about  80  per  cent  of  the 
children  of  this  group  whose  relational  condition  was  reported 
are  orphans  or  half-orphans.  The  figures  are  not  fully  convincing, 
however,  as  some  institutions  call  children  of  divorced  parents,  or 
those  deserted  by  parents,  orphans.  Also,  it  should  not  be  over- 
looked that  the  average  in  care  use  only  83  per  cent  of  the  capacity 
of  these  institutions.  This  agrees  with  the  conditions  found  in 
the  two  cottage  groups  already  studied,  and  with  other  groups 
whose  statistics  are  yet  to  come. 

One  of  the  leading  social  workers  of  Pennsylvania  recently 
declared:  "Our  state  already  has  enough  bricks  and  mortar,  and 
plenty  of  beds  and  pillows,  to  provide  for  all  of  our  dependent 
children  population  needing  institutional  care,  providing  that  the 

*  Excluding  certain  institutions  which  occupy  rented  property. 
188 


The  Home  and  Its  En\  irons 


I  he  l'.iniil\-  (iroup 
Boys'  Industrial   Homi;  of-  Western  Pennsylvania,  Oakdale.     (See  Table  i6,  p.  190) 


Home  for  Colored  Children,  Termon  Avenue,  Pittsburgh.    (See  Table  i6,  p.  191) 


Carpenter  Shop 
DowNiNGTowN  INDUSTRIAL  AND  AGRICULTURAL  ScHOOL,  DowningtowTi.  (See  Table 

p.  190) 


NONSECTARIAN    ORPHANAGES    AND    HOMES 

institutions  now  in  existence  are  properly  coordinated.  We  should 
go  slowly  in  erecting  new  institutions,  for  an  over-supply  of  such 
facilities  is  convincing  evidence  of  unscientific  basis  for  our  chari- 
table work,  especially  as  it  relates  to  normal  children." 

Those  interested  in  individual  institutions  found  in  this 
group,  or  in  the  group  as  a  whole,  will  find  inportant  information 
in  the  sections  of  Table  i6. 


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197 


CHAPTER   XXI 

CATHOLIC  ORPHANAGES  AND   HOMES 
Congregate  Type 

THE  27  institutions  in  this  group  are  located  in  1 1  counties  of 
the  state,  and  in  13  different  towns  and  cities.  Five 
are  in  Pittsburgh  and  nine  are  in  Philadelphia.  The 
oldest  of  them,  St.  John's  Orphan  Asylum  for  boys,  in  Philadel- 
phia, was  founded  in  1797,  and  its  counterpart,  St.  Joseph's  Orphan 
Asylum  for  girls,  in  1798.  The  Paradise  Protectory  at  Abbotts- 
town,  Adams  County,  was  established  in  191 1. 

They  have  an  aggregate  plant  valuation  of  $4,332, 500  and 
an  endowment  of  $400,000,  the  latter  all  held  by  three  institutions. 
The  combined  capacity  is  6,043,  or  a  per  capita  plant  cost  of  $717. 
Fourteen  of  the  27  institutions  in  this  group  received  state  aid, 
the  aggregate  amount  being  $47,376.  This  was,  however,  only 
9  per  cent  of  the  group's  current  income  and  expense. 

One  of  these  institutions  cares  for  both  dependent  and  delin- 
quent children,  and  the  other  26  care  for  dependents  only.  One 
receives  only  colored  or  Indian  children,  11  take  only  white  chil- 
dren, and  the  remainder  have  no  race  or  color  restrictions.  Eight 
of  the  27  handle  boys  only,  six  confine  their  work  to  girls,  and  the 
other  14  care  for  both  sexes. 

Owing  to  the  fact  that  most  of  the  workers  in  these  institu- 
tions are  Sisters  and  Brothers  of  the  various  Catholic  orders,  and 
receive  no  cash  salaries,  or  at  least  merely  nominal  compensation, 
the  amounts  indicated  for  this  kind  of  expense  are  very  small. 
The  aggregate  for  the  entirfe  group  is  only  $69,600,  or  $13  per  capita 
of  the  average  number  of  children  in  care.  The  number  of  regular 
workers  is  given  as  506,  or  one  for  each  1 1 .4  of  the  average  number 
of  children  in  care;  which  is  nearly  double  the  number  of  children 
per  worker  as  compared  with  the  institutions  of  other  groups. 

Of  the  3,688  children  received  during  the  year  studied,  which 
for  many  of  them  was  the  year  ending  May  31,  1912,  about  72  per 

198 


St.   Paul's  Oki'han  Asyi.lm,   Idlewood,     (See  p.  i()()) 


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CATHOLIC    ORPHANAGES    AND    HOMES 

cent  were  received  from  relatives  and  friends  of  the  ciiildren,  and 
the  remaining  28  per  cent  were  received  from  courts  and  other 
agencies.  The  average  in  care  was  5,772,  or  96  per  cent  of  the 
aggregate  capacity. 

Several  of  the  orphanages  in  this  group  are  among  the 
largest  and  most  important  child-caring  institutions  in  the  state. 
Mention  should  be  made  of  St.  Paul's  Orphan  Asylum,  at  Idle- 
wood,  near  Pittsburgh,  which  has  a  plant  valued  at  $810,000  and 
an  average  of  1,144  children  in  care.  The  Holy  Family  Polish 
Orphan  Asylum  at  Pittsburgh  has  property  valued  at  $245,000 
and  cares  for  an  average  of  220  children.  The  Roselia  Foundling 
Asylum,  at  Pittsburgh,  values  its  plant  at  $230,000  and  has  an 
average  of  186  in  care,  all  babies  and  very  young  children,  con- 
fessedly the  hardest  class  to  care  for  successfully  in  an  institution. 

At  Philadelphia  are  the  three  St.  Vincent's  homes,  all  impor- 
tant institutions  with  over  half  a  century  of  history:  St.  Vincent's 
Orphan  Asylum,  at  Tacony,  founded  in  1855,  with  a  property 
valued  at  $100,000,  caring  for  children  of  both  sexes,  and  an  average 
of  270  in  care;  St.  Vincent's  Home  and  Maternity,  founded  in 
1858,  with  a  property  valued  at  $150,000,  caring  for  babies  and 
children  up  to  four  years,  and  an  average  of  336  in  care;  and  St. 
Vincent's  Home,  founded  in  1858,  with  a  property  valued  at  $350,- 
000,  caring  for  children  of  both  sexes,  and  an  average  of  450  in 
care.  And  there  are  more  Catholic  institutions  almost  equally 
important  and  deserving  of  mention. 

It  is  greatly  to  be  regretted  that  in  many  of  the  institutions 
of  this  group,  as  well  as  many  others  throughout  the  state,  normal 
and  defective  children  are  mingled  together,  to  the  great  detriment 
of  all.  The  normal  are  depressed  and  injured  by  close  association 
with  the  defective,  and  the  defective  evidently  can  not  have  the 
special  care  and  training  required. 

Very  many  of  the  plants  occupied  by  the  institutions  of  this 
group  are  old  and  lack  the  sanitary  equipment  and  modern  con- 
veniences found  in  those  later  erected.  This  fact,  coupled  with 
the  inadequate  number  of  workers,  naturally  leads  to  the  inference 
that  the  standards  of  care  for  children  in  such  institutions  can  not 
be  in  accord  with  modern  ideas. 

Many  of  the  institutions  are  in  parts  overcrowded,  although 
199 


CHILD    WELFARE    WORK    IN    PENNSYLVANIA 

in  other  parts  there  may  be  room  to  spare.  The  dormitories  are 
frequently  badly  ventilated;  the  dining  rooms  dingy  and  unat- 
tractive, the  dishes  and  cutlery  crude  and  coarse,  the  tables  some- 
times bare  boards,  sometimes  covered  with  oilcloth,  seldom  dressed 
with  neat  table  cloths  and  napkins.  The  few  exceptions,  where  a 
better  type  of  buildings,  furnishings,  and  service  are  found,  only 
emphasize  the  many  which  still  hold  to  the  ways  which  seemed 
good  enough  half  a  century  ago. 

There  is  a  valid  reason  for  the  slow  advance  in  methods  and 
facilities  in  many  of  these  institutions.  It  is  the  great  pressure 
constantly  brought  to  bear  upon  them  by  both  church  leaders  and 
public  officials  to  receive  and  care  for  large  numbers  of  children. 
All  of  their  available  time,  efforts,  and  finances  are  engaged  to  carry 
on  the  increasing  work  of  child-care,  and  while  toiling  so  diligently 
at  practical  every-day  duties,  some  of  their  strongest  executives 
may  be  excused  for  not  keeping  up  with  modern  developments  in 
institutional  buildings  and  scientific  methods. 

Even  if  they  recognize  the  advantages  of  change  from  the 
old  ways  to  the  new,  to  adopt  the  new  is  often  impracticable.  The 
great  investment  in  old-fashioned  plants  useless  and  valueless  for 
any  other  purpose,  the  impossibility  of  raising  funds  to  replace  or 
even  modernize  them,  and  the  necessity  of  providing  for  the  never- 
ending  army  of  needy  children  marching  to  their  doors,  seem  to 
forbid  any  great  changes  in  either  buildings  or  methods.  Under 
such  circumstances  indiscriminate  criticism  is  not  justified. 

Most  of  the  executives  in  charge  of  these  institutions,  and 
leading  Catholic  laymen  connected  with  their  boards  of  manage- 
ment, recognize  the  validity  of  a  call  to  all  child-caring  institutions 
for  better  work  and  more  advanced  methods.  And  as  previously 
indicated,  wherever  to  them  it  seems  possible,  the  newer  plans  are 
being  adopted,  the  buildings  modernized,  and  the  methods  of  care 
improved. 

One  great  reason  for  these  progressive  tendencies  is  the 
increased  association  of  Catholic  and  non-Catholic  social  workers. 
The  presence  at  and  participation  in  the  active  work  of  the  National 
Conferences  of  Charities  and  Correction  of  such  Catholic  social 
workers  as  Bishop  Spaulding  of  Peoria,  Illinois,  Father  Francis H. 
Gavisk  of  Indianapolis,  Thomas  M.  Mulry  and  George  B.  Robin- 

200 


CATHOLIC   ORPHANAGES    AND    HOMES 

son  of  New  ^'ork,  Brother  Barnabas  of  Lincolndale.  and  David  H. 
Tilly  of  Boston,  have  done  much  to  break  down  the  old  walls  of 
exclusion  and  enable  Catholics  and  non-Catholics  to  learn  from 
each  other.  Increased  association  and  the  mutual  imparting  of 
experiences  will  enable  both  to  accomplish  many  things  which 
now  appear  impossible. 

Because  of  space  limitations,  the  reader  is  referred  to  the 
four  sections  of  Table  17  for  many  interesting  details  in  regard  to 
this  important  group  of  institutions. 


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205 


CHAPTER   XXII 

GENERAL  CHURCH   ORPHANAGES  AND   HOMES— 
Congregate  Type 

THIS  group  is  composed  of  30  institutions,  representing  12 
religious  denominations.  They  are  located  in  1 5  different 
towns  and  cities  in  1 1  counties  of  the  state. 

The  American  Salvation  Army  has  two  small  institutions, 
one  at  Erie  and  one  at  Allentown.  The  Christian  Volunteers  have 
one  small  home  at  Allentown.  The  Friends  have  two  institutions 
in  Philadelphia,  one  for  white  children  of  both  sexes  and  one  for 
Negro  girls.  The  German  Protestants  have  an  orphan  asylum  at 
West  Liberty,  a  suburb  of  Pittsburgh.  The  Hebrews  have  five 
institutions,  one  at  Farm  School,  Bucks  County,  the  rest  in  Phila- 
delphia. The  Lutherans  have  seven  institutions,  located  at  Topton, 
Marwood,  Mars,  Zelienople,  Loysville,  and  Philadelphia.  The 
Mennonites  have  one  home  at  Millersville.  The  Methodist  Epis- 
copalians have  one  at  Pittsburgh.  The  Protestant  Episcopalians 
have  six — one  each  at  Pittsburgh,  Rosemont,  and  Jonestown,  and 
three  at  Philadelphia.  The  Reformed  church  ha;s  one  at  Womels- 
dorf.  The  Salvation  Army  has  one  each  at  Pittsburgh  and  Phila- 
delphia, and  the  United  Presbyterians  one  at  Pittsburgh. 

The  aggregate  value  of  the  plants  is  ^2,122,700.  The  com- 
bined capacity  of  these  institutions  is  2,427  and  the  cost  of  plant 
per  bed,  $908.  Twenty  of  the  30  institutions  are  endowed,  the 
aggregate  of  endowment  being  ^1,729,700.  Only  six  receive  aid 
from  public  funds,  the  aggregate  received  being  ^24,574,  which  is 
only  7  per  cent  of  the  current  expense. 

The  number  of  regular  employes  was  338  and  the  average 
number  in  care,  1,998.  This  gave  them  one  worker  for  every  5.9 
children  of  the  average  in  care.  The  amount  expended  for  salaries 
was  ^101,940,  or  ^51  per  capita;  the  entire  expense  for  mainte- 
nance was  $332,800,  or  $167  per  capita. 

All  of  the  institutions  care  only  for  dependents.  One  re- 
206 


Plav  and  I'r 


Girls'  LavaU)r\ 
Lutheran  Orphans'   Home,  Topton.     (See  p.  207) 


The  Home  on  Church  Lane 


Girls'  Baseball  Team 
Jewish  Foster  Home  and  Orphan  Asylum,  Germantown,  Philadelphia.    (See  p.  207) 


GENERAL  CHURCH  ORPHANAGES  AND  HOMES 

ceives  boys  onl\-;  three  devote  their  work  to  girls,  and  the  other 
26  care  for  both  sexes.  Two  restrict  their  services  to  Negroes, 
five  to  Jewish  dependents,  19  to  white  children,  and  nine  have  no 
race  or  color  restrictions.  Most  of  them  are  careless  about  investi- 
gation and  supervision,  depending  with  four  exceptions  upon 
pastors,  voluntary  committees,  or  their  own  superintendents  for 
this  work. 

The  variation  in  per  capita  expense  in  this  group  extends 
from  a  minimum  of  ^36  to  a  maximum  of  $737.  The  former 
almost  impossible  figure  is  at  the  Lutheran  Orphans'  Home  at 
Topton,  and  can  be  accounted  for  only  on  the  basis  of  cash  outlay, 
the  farm  produce  and  donations  not  being  figured.  The  other  is 
the  Hebrew  institution  for  large  boys  at  Farm  School,  erected  in 
1896  to  train  Jewish  youths  in  agriculture.  It  is  perhaps  more  of 
a  school  than  anything  else,  as  they  have  19  regular  workers  for 
an  average  of  63  boys  and  expend  ^11,933  annually  in  salaries. 

Most  of  the  homes  in  this  group  are  of  good  quality  and  are 
doing  successfully  the  usual  work  of  such  institutions.  Some  have 
long  and  creditable  histories.  One,  the  Shelter  for  Colored  Or- 
phans, at  Philadelphia,  was  founded  in  1822.  Their  altruistic 
purpose  is  universally  acknowledged,  while  some  regret  arises  on 
account  of  the  evidently  limited  financial  means  of  several  of  the 
institutions,  and  the  too  conservative  management  of  others.  As 
a  whole  they  are  doing  very  creditable  work  and  are  caring  for  a 
large  number  of  destitute  and  dependent  children. 

The  Jewish  Foster  Home  and  Orphan  Asylum  of  Philadel- 
phia is  pre-eminent  in  this  group  as  an  example  of  what  is  possible 
in  the  application  of  modern  methods  and  individual  care  in  spite 
of  numbers  and  congregate  equipment.  The  use  of  the  public 
school,  the  close  association  of  inmates  with  the  children  of  the 
community,  the  stimulation  of  ambition  and  initiative,  and  the 
intimate  home  spirit  of  the  institution,  are  points  that  might  well 
be  emulated  by  the  less  up-to-date  ones  of  this  group  and  other 
institutions  throughout  the  state. 

It  is  clear  that  a  number  of  these  institutions  are  small  and 
poor.  They  possess  very  inadequate  plants  and  sadly  insufficient 
incomes.  In  origin  they  are  apparently  the  efforts  of  members  or 
officials  of  minor  sects  or  religious  bodies  to  enter  the  field  of  social 

IS  207 


CHILD    WELFARE    WORK    IN    PENNSYLVANIA 

service  by  the  popular  gate  of  child-care.  With  no  experience, 
small  means,  a  limited  constituency,  and  the  field  already  v/ell 
covered  by  other  agencies,  the  chief  result  has  been  to  add  another 
name  to  the  list,  already  too  long,  of  struggling  orphanages  and 
homes  appealing  to  the  public  for  donations  and  to  the  authorities 
for  a  dole  from  the  public  treasury. 

It  may  be  safely  predicted  that  at  least  one  or  two  of  the 
members  of  this  group  described  in  the  last  paragraph,  and  having 
the  most  limited  resources,  soon  will  be  abandoned,  and  their 
inmates  provided  for  elsewhere.  Perhaps  as  institutions  they  will 
be  only  names  on  the  list  by  the  time  this  report  is  published.  The 
need  of  more  adequate  supervision,  and  a  greater  measure  of  au- 
thority in  some  central  public  body  to  raise  the  standard  of  insti- 
tutional service,  is  here  again  clearly  indicated. 

For  details  concerning  plant  and  endowment,  current  finance, 
workers  and  children,  and  other  important  matters,  the  reader  is 
urged  to  carefully  study  the  four  sections  of  Table  i8. 


208 


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213 


CHAPTER   XXIII 

INSTITUTIONS  FOR  COMBINED  CARE  OF  ADULTS  AND 
CHILDREN 

THE  institutions  in  this  class  are  nearly  all  devoted  to  the 
combined  care  of  mothers  and  children.  The  majority 
of  the  mothers  are  wayward  and  delinquent,  and  the 
children  illegitimate.  There  are  exceptions,  and  in  some  cases 
deserted  wives  or  widows  with  children  are  included.  A  few  in- 
stitutions care  for  all  sorts  of  wayward  girls  from  six  or  eight  years 
up,  with  no  definite  discharge  limit. 

It  should  also  be  noted  that  many  of  the  mothers  are  under 
eighteen,  some  of  them  as  young  as  fourteen  years  of  age,  and 
should,  therefore,  be  counted  as  a  part  of  those  requiring  mainte- 
nance as  minors.  When  it  was  possible  the  visitors  obtained  the 
numbers  of  adults  and  minors  cared  for,  and  the  amount  spent  on 
the  minors.  In  other  cases,  by  the  help  of  the  institution  oificers, 
estimates  were  made  of  the  proportion  of  work  done  for  children, 
and  the  income  and  expenses  in  the  tables  are  figured  on  that 
basis.  For  instance,  if  the  estimate  was  that  50  per  cent  of  the 
work  done  was  for  minors,  one-half  of  the  institution's  income  and 
expense  is  counted  as  related  to  children.  While  the  tabulation 
figures  are  mainly  estimates,  they  will  vary  but  little  from  the 
real  cost  of  the  work. 

There  are  22  of  these  homes  in  10  different  communities. 
Seven  belong  to  the  chain  of  Florence  Crittenton  Homes,  which 
reaches  across  the  entire  nation. 

Thirteen  of  the  homes  are  cottage  institutions  and  nine  are 
congregate  in  type.  Five,  all  congregate,  are  Roman  Catholic; 
one  is  Lutheran,  one  Protestant  Episcopal,  and  the  remainder  are 
nonsectarian.  Their  capacity  for  adults  is  406  and  for  children 
1,173.  The  latter  number  contains  several  institutions  caring  for 
inmates  of  all  ages  from  young  children  to  adults,  but  without 
definite  division  into  classes.     The  total  capacity  is  1,579.     One 

214 


INSTITUTIONS    FOR    COMBINED    CARE 

home  is  for  colored  inmates  only,  1 1  for  white  only,  and  the  re- 
mainder have  no  color  restrictions. 

The  value  of  the  plants  is  $1,114,200;  the  endowments, 
$113,900;  or  a  total  in  property  investment  of  $1,228,100.  The 
average  cost  of  plant  per  capita  of  capacity  is  $706. 

The  portion  of  the  expense  used  for  children  is  estimated  at 
$152,163;  the  estimated  amount  of  public  funds  used  for  children 
is  $35,965,  which  is  24  per  cent  of  the  expense. 

During  the  year  studied  these  institutions  received  1,158 
children  and  had  a  total  of  2,116  in  care.  They  placed  148  in 
family  homes,  returned  548  to  kin,  and  had  931  children  on  hand 
at  the  close  of  the  year. 

The  amount  expended  for  salaries  for  child-care  was  $29,- 
253,  or  an  average  of  $41  per  capita;  the  total  expense  per  capita 
averaged  Si 61.  The  number  of  employes  was  191  and  the  average 
number  of  children  in  care  was  947;  or  one  worker  for  each  4.4  of 
the  average  number  on  hand.  The  191  employes  are  estimated  to 
devote  at  least  60  per  cent  of  their  work  to  children. 

Most  of  these  institutions  are  doing  an  excellent  work  for 
difficult  classes  of  unfortunates.  In  some  of  the  institutions  the 
equipment  is  inadequate,  and  the  dependents  and  the  delinquents 
are  not  properly  segregated.  Some  retain  the  old  penal  methods 
of  reformation  and  should  in  some  way  be  brought  to  accept  more 
modern  ideas  and  methods. 

The  old  idea  that  the  public,  and  even  the  state,  has  no 
right  to  know  what  is  done  within  a  privately  managed  institution 
of  this  sort,  still  prevails  to  some  extent  among  these  institutions. 
For  this  reason  it  was  difficult  for  the  visitors  to  secure  admission 
to  some  of  them,  and  doubly  difficult  to  secure  adequate  statistics. 
It  is  hoped  that  ultimately  it  will  be  realized  that  secretiveness 
arouses  suspicion,  while  frankness  and  freedom  open  the  way  to  the 
closest  co-operation  and  the  largest  success. 

Society  in  general  should  consider  and  require  several  things 
in  regard  to  such  institutions  and  the  unfortunates  whose  need 
calls  for  their  establishment. 

I.  By  adequate  supervision  under  state  authority  these 
institutions  should  be  improved  and  standardized.     All  should  be 

215 


CHILD   WELFARE    WORK    IN    PENNSYLVANIA 

required  to  have  trained  nurses  and  adequate  facilities.  Only 
thus  can  the  welfare  of  the  inmates  be  assured  and  excessive  in- 
fant mortality  prevented. 

2.  The  inmates,  most  of  whom  have  been  weak  and  ignorant 
rather  than  wilfully  vicious,  should  receive  sympathetic  moral  and 
religious  training  and  influence,  free  on  the  one  extreme  from  a  lax 
condonement  of  their  wrongdoing,  from  an  austere  presentation 
of  its  penal  and  doctrinal  aspects  on  the  other.  Kind  treatment, 
wise  teaching,  and  real  sympathy  will  redeem  many  lives.  Care- 
less indifference,  Pharisaic  drawing  of  skirts,  and  official  threaten- 
ings  or  forced  institutional  confinement,  usually  kill  hope,  con- 
firm tendencies  to  evil,  and  result  in  utter  ruin. 

3.  The  present  confused  conditions  should  be  changed,  and 
the  various  institutions  so  constituted  that  only  similar  cases 
would  be  closely  associated.  Innocent  children  should  not  be 
located  in  the  same  building  with  delinquents.  Poor  but  respect- 
able married  women  should  have  places  of  refuge  where  their 
reputation  will  not  suffer  from  their  institutional  relations  to  those 
of  the  vicious  classes.  All  of  which  calls  for  more  of  system  and  a 
larger  measure  of  co-operation, 

4.  Standardization  will  not  require  absolute  uniformity  of 
method,  only  that  the  service  rendered  shall  be  of  high  quality. 
It  matters  little  whether  unmarried  mothers  are  detained  at  the 
institution  three  months,  six  months,  or  a  year.  The  number  who 
shall  nurse  their  own  babies,  and  the  length  of  time  before  weaning; 
and  the  number  that  shall  be  bottle-fed,  and  their  food  formulas, 
are  matters  for  nurses  and  physicians  to  settle.  Even  the  ques- 
tion whether  the  girl  shall  be  compelled  to  face  the  world  with  the 
baby  in  her  arms,  or,  on  refusal  of  parents  and  relatives  to  allow 
her  to  return  home  with  the  child,  whether  she  may  be  allowed  to 
offer  it  for  adoption  through  approved  agencies,  is  beyond  all 
general  rules. 

5.  To  supply  high  grade  institutions  and  properly  officer 
them  in  adequate  numbers  will  require  much  larger  funds  than 
have  heretofore  been  used  in  this  work.  If  evil  lying-in  homes 
and  death-trap  baby  farms  are  abolished,  or  reduced  to  the  mini- 
mum, the  capacity  of  these  institutions  of  the  better  class  must 

216 


The  Home 


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INSTITUTIONS    FOR    COMBINED    CARE 

be  enlarged.  Of  course  all  possible  preventive  measures  must  be 
used;  but  the  millennium  is  a  long  way  off.  Present  conditions, 
and  those  probable  for  an  indefinite  future,  demand  service  of  this 
sort.     It  should  be  made  good,  and  that  means  more  money. 

While  the  four  sections  of  Table  19  contain  many  estimates 
in  regard  to  the  work  of  the  22  institutions,  it  is  believed  that  the 
facts  are  closely  approximated.  The  reader  is  referred  to  them 
for  many  interesting  facts  and  details,  which  can  not  be  brought 
out  in  the  text  of  this  chapter. 


217 


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CHAPTER   XXIV 

SUMMARY    FOR    PRIVATE    INSTITUTIONS    FOR 
DEPENDENTS 

IMPORTANT  as  are  the  groups  of  institutions  related  to  the 
special  classes,  and  the  53  child-caring  agencies,  treated  in 
preceding  parts  of  this  book,  they  are  entirely  outclassed  by 
the  division  now  under  consideration  in  at  least  three  respects, — 
number  of  institutions,  aggregate  of  children  in  care,  and  financial 
investments.  Table  20,  which  is  a  summary  of  the  six  groups  into 
which  the  175  institutions  have  been  divided  for  convenience  in 
study  and  tabulation,  presents  a  startling  set  of  figures,  almost 
unbelievable  but  for  the  fact  that  each  item  can  be  traced  back  to 
its  original  group,  and  then  to  the  various  individual  reports  of 
which  it  is  the  sum. 

In  the  153  orphanages  and  homes,  and  the  22  institutions 
for  combined  care,  there  are  invested  in  plants,  which  include 
grounds,  buildings,  and  furnishings,  §19,648,400.  The  endowment 
of  these  same  institutions  totals  §42,052,300.  This  makes  a 
total  property  investment  in  them  of  §61,700,700.  The  current 
expense  for  the  year  studied  was  §2,596,958.  Even  this  one  class 
of  institutions  shows  its  importance  by  the  immensity  of  the  finan- 
cial interests  involved. 

The  capacity  of  these  175  institutions  aggregates  17,699 
children,  or  an  average  of  loi  in  each  institution.  The  average 
number  in  care  for  the  175  institutions  aggregates  14,952  children; 
thus,  on  the  average,  lacking  2,747  of  being  filled  to  capacity,  or 
in  other  terms,  only  84  per  cent  of  the  beds  in  the  institutions  are 
in  regular  use.  This  would  indicate  that,  taking  the  state  as  a 
whole,  there  is  no  need  for  increased  institutional  provision  for 
dependent  children. 

Under  the  more  varied  methods  developed  in  the  care  of 
this  class  of  children,  especially  during  the  last  decade,  rapid 
changes  of  inmates  take  place  in  most  of  these  institutions.     We 

222 


SUMMARY    FOR    PRIVATE    INSTITUTIONS 

find  that  there  was  a  total  of  25,389  children  in  care  during  the 
year.  Of  these,  1,258  were  placed  in  family  homes,  4,636  were  re- 
turned to  kin  or  friends,  343  died,  and  3,965  were  disposed  of  other- 
wise. At  the  close  of  the  year  there  were  1 5, 187  children  remain- 
ing in  care. 

The  175  institutions  had  an  aggregate  of  2,384  employes,  or 
an  average  of  one  employe  for  every  6.3  children.  The  average 
per  capita  for  salaries  ran  from  Si 3  in  the  Catholic  institutions  to 
^95  in  the  group  of  nonsectarian  cottage  institutions.  The  aver- 
age for  the  175  institutions  was  §45  per  capita;  the  other  expenses 
averaged  S128  per  child;  and  the  total  expense,  found  by  adding 
these  items,  was  $173  per  capita. 

Owing  to  the  very  large  endowments  held  by  many  of  the 
institutions  in  this  group,  the  average  per  cent  of  public  funds  to 
the  total  income  is  very  low,  running  from  nothing  to  24  per  cent. 
The  entire  group  of  the  175  institutions  received  $290,623  in  public 
funds  during  the  year,  an  average  of  Si, 661  per  institution.  As 
noted,  many  institutions  received  no  public  funds  at  all,  while 
others  received  much  more  than  is  indicated  by  the  average. 

From  the  extended  tables  which  accompany  this  written  sum- 
mary, let  us  construct  a  few  suggestive  tables  of  totals,  including 
the  above  and  other  matters  of  interest.  Oftentimes  very  impor- 
tant facts  and  deductions  may  be  overlooked  when  the  tables  are 


TABLE    I. —  PROPERTY    VALUES    OF     1 75     INSTITUTIONS    FOR 
DEPENDENTS 


Type  of  institution 

Institu- 
tions 

Value 

of 
plant 

Endowment 

Total 
value  of 
property 

Value  of 
plant  per 
capita* 

Orphanages  and  homes 
Cottage    .... 
Congregate    . 

Institutions    for    com- 
bined care  of  adults 
and  children       .      . 

43 
no 

22 

$3,134,500 
15,399,700 

1,114,200 

$7,457,100 
34,481,300 

113,900 

$10,591,600 
49,881,000 

1,228,100 

$1,496 
1,131 

706 

Total    .... 

175 

$19,648,400 

$42,052,300 

$61,700,700 

$1,136 

"  Based  on  capacity,     institutions  in  rented  property  were  not  included. 
16  223 


CHILD    WELFARE    WORK    IN    PENNSYLVANIA 


large,  which  are  plainly  apparent  when  the  vital  figures  are  sepa- 
rated from  the  mass. 

Take  first  the  large  investments  the  people  of  Pennsylvania 
have  made  in  erecting  and  endowing  these  orphanages  and  homes. 
As  noted  before,  an  idea  of  their  importance  is  suggested  by  the 
financial  values  they  represent.     (See  Table  I,  p.  223.) 

It  has  greatly  surprised  all  who  have  seen  the  figures  to  learn 
what  a  large  amount  is  annually  raised  and  expended  by  these  in- 
stitutions. Generally  it  has  been  supposed  that  a  very  large  part 
of  their  support  was  derived  from  public  funds.  The  fact  that 
only  1 1  per  cent  of  the  annual  expenses  was  from  public  sources 
and  89  per  cent  from  private  sources,  is  a  revelation.  (See  Table 
J,  below.) 

TABLE    J.— MAINTENANCE    EXPENSE:    AMOUNT    AND    PER   CENT    DE- 
RIVED   FROM    PUBLIC    FUNDS    FOR     I75     INSTITUTIONS    FOR 
DEPENDENTS 


Type  of  institution 


Institu- 
tions 


Maintenance  expense 


Total 


Per  cent 
derived 
from  pub- 
lic funds 


Per  cent 
paid  for 
salaries 


Per  cent 

paid  for 

other 

expenses 


Orphanages  and  homes 

Cottage     .... 

43 

$475,334 

9 

28 

7f 

Congregate     .      .      . 

110 

1,969.461 

11 

24 

76 

Institutions     for     com- 

bined care  of  adults 

and  children    .      .      . 

22 

152,163 

24 

19 

81 

Total 


175      $2,596,958 


75 


The  next  table  shows  the  extent  of  work  done,  by  giving 
capacity,  numbers  received  and  discharged,  numbers  placed  in  family 
homes,  and  on  hand  at  the  end  of  the  year.     (See  Table  K,  p.  225.) 

A  fourth  table  shows  some  important  averages  drawn  from 
the  totals  given  above.  It  will  be  noted  that  condensed  from 
six  groups  to  three,  according  to  type,  some  different  per  capitas 
appear.     To  obtain  a  per  capita  average  of  permanent  investment 

224 


SUMMARY    FOR    PRIVATE    INSTITUTIONS 

TABLE    K. — CAPACITY    AND    CHILDREN     IN    CARE    FOR     1 75    INSTITU- 
TIONS   FOR    DEPENDENTS 


Type  of  institution 


Institu- 
tions 


Orphanages  and  homes 
Cottage 
Congregate 

Institutions  for  com- 
bined care  of  adults 
and  children 


Capacity 


Children 


Received 


Placed 
n  family 
homes 


Total 

number 

passed 

from 

care 


In  institu- 
tion at 
close 
of  year 


2,273         1,046 
13.S47        8,589 


.579" 


204  939 

906       8,078 


148        1,185 


1,776 
12,480 


931 


Total 


175         17,699       10,793         1,258       10,202       15. '87 


■'  Includes  406  adults. 

it  is  necessary  to  use  as  a  base  the  average  number  of  children  in 
care.  The  average  cost  of  plants  based  on  capacity  (see  Table 
I,  page  223),  $1,136,  is  one  thing;  this  is  another.     These  institu- 


TABLE    L. — PER     CAPITAS     FOR    CURRENT    EXPENSE    AND    PERMA- 
NENT   INVESTMENT    FOR     1 75     INSTITUTIONS    FOR    DEPENDENTS 


Type  of  institution 


Institu- 
tions 


Average 
number 
children 
in  care 


Per  capita  expense  for' 


Salaries 


Total 
mainte- 
nance 


Per  capita 
value  of 

plant  and 
endow- 
ment'' 


Orphanages  and  homes 

Cottage     ....  43 

Congregate     .      .      .  110 

Institutions  for  com- 
bined care  of  adults 
and  children    ...  22 


1.752 
12,253 


947 


^75 
40 


$271 
161 


^5,064 
3,664 


Tot  a 


175 


14,952 


$45 


174 


$3,570 


Based  on  average  number  of  children  in  care. 
Based  on  capacity. 

223 


CHILD    WELFARE    WORK    IN    PENNSYLVANIA 

tions  have  a  permanent  investment  in  plant  and  endowment  of 
^3,570  for  each  child  of  the  average  number  in  care.  (See  Table 
L,  p.  225.) 

The  matter  of  salaries  and  wages  is  always  important.  The 
figures  below  are  drawn  or  figured  from  the  more  general  tables. 
It  should  be  remembered  that  in  addition  to  the  cash  salaries  here 
indicated,  the  employes  receive  board  and  lodging.  Also,  that 
in  the  Catholic  institutions  the  Sisters  and  Brothers  receive  no 
salaries,  or  at  most  those  merely  nominal;  and  that  in  all  of  the 
institutions  most  of  the  workers  are  women,  who  customarily  re- 
ceive less  than  men  for  similar  service.     (See  Table  M,  below.) 

TABLE    M. — SALARIES    OF    EMPLOYES   AND   CHILDREN    PER    EMPLOYE 
FOR    175    INSTITUTIONS   FOR    DEPENDENTS 


Type  of  institution 


Institu- 
tions 


Regular 
employes 


Total 
salaries 


Average 
salary 
per  em- 
ploye 


Average 
number  of 
children 

per 
employe 


Orphanages  and  homes 
Cottage  .... 
Congregate     . 

Institutions  for  com- 
bined care  of  adults 
and  children   . 


395        ^131,781  $334 

1,798  478,111  272 


29.253 


168 


4-4 
6.9 


4-4 


Total 


2,384        $639,145  $275 


6.3 


This  condensed  grouping  and  selection  of  points  for  study  will 
call  attention  to  matters  otherwise  likely  to  be  overlooked,  but 
should  not  take  the  place  of  a  careful  review  of  the  more  general 
sections  of  the  summary.  The  importance  of  these  175  institu- 
tions in  the  child-caring  system  of  the  state  is  ample  justification 
for  this  extended  study  of  their  statistics. 


226 


*^r^r^ 

rtrpiM^ 

Main  Bni.niNG,  Mhnnonite  Children''-  Home,  Millersville.     (See  Table  18,  p.  210) 


House  oe  nn    Hoev  Child,  a  Negro  Orphanage,  Philadelphia.     (See  I  able  18,  p.  209) 


Main   Buildin'g,   Friends'   Homh  for  Childrkn,  Philadelphia.     (See  Table  i8,  p.  209) 


View  of   Buildings,  St.  John's  Lutheran  Home,  Mars.     (See  Table  18,  p.  200) 


Home  of  the  Good  Shepherd,   Rosemont.     (See    lable    iS,   p.   209) 


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229 


CHAPTER  XXV 

GENERAL   SUMMARY   FOR  AGENCIES  AND   INSTITU- 
TIONS 

IN  order  to  visualize  at  once,  as  a  sort  of  composite  picture,  the 
2IO  institutions  and  the  46  agencies  represented  in  Parts  Two, 
Three,  and  Four  of  this  study,  a  general  summary  is  given.  At 
some  points,  especially  in  the  statistics  of  children,  there  are 
unavoidable  duplications.  But  as  the  3,000  children  cared  for  in 
almshouses,  and  the  hundreds  indicated  in  the  table  for  the  special 
child-caring  agencies,  do  not  appear  in  the  summaries,  uncounted 
children  will  more  than  make  up  for  duplications  in  final  totals. 

These  organizations  cover  more  than  a  century  of  social 
work.  One  orphanage  was  established  in  1797  and  another  in 
1798.  Others  cover  all  decades  of  the  nineteenth  century  and 
some  were  founded  as  late  as  191 2.  We  have  here  no  ephemeral 
impulse,  but  an  increasing  and  permanent  philanthropy.  Some  of 
it  may  be  governmental  and  directly  under  the  control  of  elected 
officers;  but  none  the  less,  even  this  part  is  the  expression  of  broth- 
erly kindness  and  a  real  love  for  humanity.  The  whole  child- 
caring  system  gives  visible  and  tangible  evidence  of  sympathy, 
goodwill,  and  generous  helpfulness. 

The  210  institutions  have  an  aggregate  capacity  of  25,163 
children,  or  an  average  of  120  children  each.  Deducting  the 
^261,400  belonging  to  the  agencies,  they  have  invested  in  plants 
the  immense  aggregate  of  $29,197,000.  This  allows  an  average 
investment  in  buildings  and  equipment  of  $139,033  to  each  insti- 
tution. The  cost  of  plant  per  bed  averaged  $1,179.*  These  matters 
are  exceedingly  important,  especially  to  any  who  are  counting  the 
cost  of  establishing  child-caring  institutions. 

The  invested  funds  and  endowments  are  even  more  remark- 
able. The  aggregate  of  these  funds  is  $47,198,800,  of  which 
$516,700  belong  to  some  of  the  agencies.     Deducting  the  agency 

*  Omitting  Girard  College  and  Widener  Memorial  School,  the  average  invest- 
ment was  $1 10,889,  an"^  the  cost  of  plant  per  bed,  $997. 

230 


GENERAL    SUMMARY    FOR    AGENCIES 

funds,  we  find  that  the  remainder  divided  among  the  210  institu- 
tions would  allow  to  each  of  them  an  endowment  of  over  ^222,000. 
It  should  be  remembered  that  the  above  aggregate  includes  the 
immense  endowment  of  Girard  College,  probably  the  wealthiest 
orphanage  in  the  world,  which  greatly  increases  the  average. 

The  totals  of  the  investments  in  child-caring  institutions 
are  $76,657,200,  of  which  $778, 100  belong  to  the  agencies.  Deduct- 
ing, as  before,  the  agency  funds,  we  have  $75,879,100  invested  in 
2!0  institutions,  or  an  average  for  each  of  $361,329.*  These 
variations  and  averages  are  presented  to  emphasize  the  greatness 
of  the  state's  financial  investment  in  child-helping  work. 

The  current  expense  problem  is  proportionately  important. 
We  find  a  total  of  3,670  regular  employes,  whose  salaries  aggregate 
$  J  ,232,835 ;  and  a  total  average  of  2 1 ,745  children  in  care,  for  whom, 
together  with  the  salaries  and  board  of  the  workers,  the  annual 
maintenance  expense  aggregates  $4,478,589.  As  the  entire  possi- 
ble income  from  the  above  mentioned  endowments  is  less  than 
$2,000,000,  it  is  plain  that  the  people  must  contribute  annually, 
either  by  taxation  or  voluntary  gifts,  about  $2,500,000. 

Deducting,  as  before,  the  funds  belonging  to  the  agencies, 
as  not  exactly  parallel  with  those  of  the  institutions,  we  have 
several  interesting  facts.  The  210  institutions  paid  an  average  of 
$55  per  capita  for  salaries,  and  the  average  total  cost  of  mainte- 
nence  was  $192  per  capita.  They  received  $1,520,817  from  public 
funds,  which  was  34  per  cent  of  their  current  expense.  They 
employed  3,670  workers  to  care  for  an  average  of  21,745  wards, 
or  an  average  of  one  worker  to  every  6.1  children.  If  the  aggre- 
gate of  experience  can  settle  it,  each  ordinary  child-caring  institu- 
tion requires  an  average  of  one  worker  for  every  six  children  in 
care.  Of  course  this  ratio  does  not  apply  to  special  institutions, 
where  there  may  be  a  worker  needed  for  every  two  children. 

The  extent  of  the  child-caring  work  in  the  state  of  Pennsyl- 
vania is  clearly  brought  out  by  Section  D  of  this  summary.  There 
were  on  hand  at  the  beginning  of  the  year  (approximately  the 
calendar  year  191 2)  21,476  children.  During  the  year,  21,009 
new  and  returned  children  came  into  care.     This  gives  a  total  of 

♦Omitting  Girard  College  and  Widener  Memorial  School,  the  average  is 
$176,669. 

231 


CHILD   WELFARE    WORK    IN    PENNSYLVANIA 

42,485  in  care,  or  handled  by  the  agencies  and  institutions  during 
the  year.  As  before  stated,  these  numbers  include  some  dupli- 
cations but  these  are  balanced  by  the  care  of  other  children  by 
institutions  and  agencies  not  represented  in  these  summaries. 

The  favor  accorded  to  placing-out  work  is  shown  by  the 
3,193  placed  in  family  homes.  The  change  in  family  conditions, 
or  rehabilitation  accomplished,  is  shown  by  the  7,666  returned  to 
kin  or  friends.  Only  i  per  cent,  or  441,  died  in  care  during  the 
year.  Nearly  half  of  these  deaths  occurred  in  a  few  institutions 
mainly  caring  for  illegitimate  and  foundling  babies.  In  various 
other  ways,  which  include  ordinary  dismissal,  coming  of  age, 
marriage,  and  so  forth,  8,642  passed  out  of  care.  At  the  end  of 
the  year,  22,543  remained  in  direct  care,  in  addition  to  whom 
there  were  10,493  under  supervision  elsewhere,  some  in  family 
homes  and  some  in  special  institutions. 

The  study  of  the  reception  sources  from  which  this  great 
army  of  children  is  annually  drawn,  while  incomplete,  is  still 
exceedingly  suggestive.  While  not  tabulated,  a  summary  is  here 
given.  Reports  were  made  of  18,048  children.  Of  these,  4,210 
were  assigned  to  the  agencies  or  institutions  by  the  juvenile  courts; 
the  directors  of  the  poor  of  the  67  counties  placed  in  their  care 
1,191 ;  relatives  and  friends  handed  over  to  the  care  of  agencies  and 
institutions  10,304,  or  57  per  cent  of  the  entire  number;  other 
agencies,  such  as  churches,  settlement  centers,  or  charity  organiza- 
tion societies,  arranged  for  the  balance,  2,343.  Put  into  percentage 
form,  the  four  sources  of  supply  furnished  dependent  children  as 
follows:  Juvenile  courts,  23  per  cent;  county  poor  boards,  7  per 
cent;  relatives  and  friends,  57  per  cent;  and  other  agencies,  13 
per  cent. 

The  relational  condition  of  these  children  is  also  important, 
and  although  not  tabulated,  some  statistics  are  available.  While 
the  data  obtained  were  not  always  exact  for  want  of  well-kept 
records,  and  reports  are  made  for  only  16,348  children,  it  is  believed 
that  the  relative  proportions  of  the  various  classes  very  nearly 
fit  the  facts.  Of  the  16,348  children  reported  by  the  various 
organizations,  9,368  were  counted  orphans  or  half-orphans,  or 
over  57  per  cent  in  this  one  class.  Some  children  of  separated 
or  divorced   parents  are  here  included.     The  wilfully  deserted 

232 


GENERAL    SUMMARY    FOR    AGENCIES 

numbered  1,400.  There  were  2,210  neglect  and  cruelty  cases. 
Those  received  on  a  general  plea  of  destitution,  or  of  some  other 
parental  disability,  totaled  3,370.  Put  into  percentage  form  we 
have  as  a  statement  of  their  relational  condition:  Orphans  or 
half-orphans,  57  per  cent;  wilfully  deserted,  9  per  cent;  neglect  or 
cruelty  cases,  14  per  cent;  and  destitute  or  otherwise  homeless, 
20  per  cent. 

The  showing  of  these  two  untabulated  summaries  will  be 
of  special  interest  to  many  as  a  general  classification  of  the  sources 
and  relational  condition  of  dependents. 

As  this  review  closes,  the  writer  cannot  help  reflecting  that 
in  all  these  thousands  of  cases  something  was  wrong.  Their 
normal  home  life  was  disjointed  or  wholly  lacking.  The  machin- 
ery of  society  related  to  them  had  broken  wheels  or  sand  in  its 
bearings.  Homeless  children  are  results.  What  are  the  causes? 
Some  of  the  causes  may  be  implied  from  the  results  themselves; 
others  by  tracing  back;  others  still  by  close  observation  of  the 
social  processes  which  continue  to  gather  a  never-ending  multi- 
tude of  recruits  for  this  army  of  unfortunates.  To  change  these 
social  processes  and  dry  up  the  sources  of  dependency  is  even  a 
greater  task  than  properly  to  provide  for  the  dependents. 


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PART  FIVE 

GENERAL  AND  LEGISLATIVE 
MATTERS 


It  is  not  feasible  to  apply  positive  eugenics  to  the  human  race.  Nega- 
tive eugenics,  on  the  other  hand,  by  the  control  of  the  unfit  members  of 
society,  is  entirely  feasible  at  the  present  time.  .  .  .  The  initial  expense 
to  provide  adequate  equipment  to  care  for  all  the  mental  defectives  in  one 
of  our  larger  states  would  not  exceed  the  cost  of  a  single  battleship. — J.  M. 
Murdoch. 

It  may  be  true  that  religion  is  not  social  service;  that  charity  or  social 
service  cannot  take  the  place  of  religion.  But  you  and  I  know  that  vital 
religion  cannot  exist  without  social  service.  ...  I  do  not  say  that  the 
church  is  to  be  substituted  by  social  service,  but  I  do  maintain  that  religion 
today  needs  to  be  rehumanized,  resocialized.  And  on  the  other  hand,  charity 
or  social  service  needs  the  uplift  of  religion. — Rabbi  Stephen  S.  Wise. 

The  state  cannot  be  indifferent  to  the  welfare  of  two  or  three  hundred 
children,  for  example,  who  are  housed  in  a  private  institution  where  they 
are  preparing  for  the  battle  of  life,  preparing  to  assume  the  responsibility  of 
citizenship.  The  municipality  where  such  an  institution  is  found  has  the 
right  at  least  to  see  that  the  buildings  are  in  good  sanitary  condition,  that 
nourishing  food  is  given  to  the  inmates,  that  adequate  educational  facilities 
are  given  the  children.  .  .  .  The  helplessness  of  its  citizens  is  therefore 
a  legitimate  basis  for  the  claim  for  supervision  of  private  institutions  by 
public  authority. — Rev.  Father  William  J.  White,  D.  D. 

The  juvenile  court  law,  as  you  know,  is  plain  and  simple.  No  com- 
plicated, technical  theories  are  involved  in  the  statute.  In  short,  it  is  but  a 
substitution  of  the  parental  power  of  the  state  for  that  of  the  criminal  branch. 
.  .  .  The  principal  object  of  the  law  is  to  keep  children  in  their  own 
homes,  or  that  they  may  be  placed  in  approved  foster  homes.  It  is  unfair 
to  the  child  that  it  be  reared  and  educated  in  a  foster  home  with  no  right  to 
inherit.  To  have  the  right  to  inherit  it  is  essential  that  a  proper  decree  of 
adoption  be  entered  in  the  case.  The  adoption  act  was  unknown  to  the 
common  law.  All  proceedings  of  this  nature  are  purely  statutory.  Hence 
the  necessity  of  having  the  law  strictly  complied  with.  Many  sad  cases  have 
come  to  my  personal  knowledge,  where  children  were  denied  the  right  of 
inheritance  because  of  defective  records  in  juvenile  and  other  courts. — T.  D. 
Hurley,  Esq. 


CHAPTER   XXVI 
GENERAL    SUGGESTIONS    AND    RECOMMENDATIONS 

AS  stated  in  an  early  chapter  of  this  commentary,  the  task  of 
digesting  and  tabulating  a  study  of  this  kind  takes  even 
more  time  and  labor  than  to  do  the  field  work.  While 
the  preceding  descriptive  matter  seems  fairly  complete,  although 
necessarily  brief,  it  is  realized  that  many  important  matters  have 
not  been  even  touched  in  the  review.  Hence,  it  will  probably 
be  best  to  here  give  expression  to  some  thoughts  the  study  has 
suggested,  in  the  hope  that  they  may  stimulate  progressive  action 
along  the  lines  of  greatest  need. 

I.     Records* 

At  the  very  outset  of  this  inquiry,  and  continually  as  it 
progressed  in  different  parts  of  the  state,  there  was  encountered  a 
difficulty  due  to  a  glaring  and  almost  inexcusable  fault,  not  peculiar 
to  Pennsylvania,  but  very  much  accentuated  there.  In  many 
cases  there  was  an  almost  utter  lack  of  any  adequate  system  of 
records;  and  in  even  the  best  institutions  there  were  many  defi- 
ciencies. Also,  the  records  as  kept,  differed  so  largely  that  it  was 
almost  impossible  to  get  uniform  lists  of  the  children  in  care,  to 
say  nothing  of  recording  their  development  and  final  disposition 
by  the  institution. 

It  hardly  seems  conceivable  that  any  institution  could  be  so 
lax  as  not  to  record  the  names  of  the  children,  the  date  of  reception, 
and  the  final  disposition  made  of  them;  but  such  is  the  case  in  some 
instances.  A  few  sheets  of  loose  paper,  on  a  shelf  in  a  cupboard 
filled  with  odds  and  ends,  is  a  trying  example  of  the  record  appli- 
ances of  one  institution.  Most  of  them  had  a  so-called  book  of 
admission,  in  which  was  recorded  not  only  the  name  and  date  of 

*  See  A  Child  Welfare  Symposium,  supplement  to  this  volume,  p.  14.  Ar- 
ticle by  J.  Bruce  Byall  on  Adequate  Records  of  Dependent  Children  in  Agencies 
and  Institutions. 

17  239 


CHILD   WELFARE    WORK    IN    PENNSYLVANIA 

reception,  but  also  a  brief  notation  of  the  child's  history  and 
possibly  a  date  of  dismissal. 

The  need  of  clear,  full,  and  systematic  records  was  the  first 
thing  impressed  upon  those  engaged  in  the  field  work,  and  later 
emphasized  as  the  work  of  tabulation  and  digestion  progressed. 
For  many  reasons  it  is  also  very  desirable  that  there  should  be  some 
degree  of  uniformity  of  records  among  the  institutions  of  the  state. 
This  it  is  believed  can  best  be  accomplished  by  the  central  super- 
vising agency  requiring  detailed  reports  on  all  lines,  on  special 
forms  prepared  by  experts.* 

It  may  also  be  noted  that  the  brief  alleged  facts  so  recorded 
were  merely  the  statements  of  persons  most  interested  in  having 
the  child  admitted  to  the  institution.  Generally,  when  the  ques- 
tion was  asked,  emphatic  assurance  was  given  that  a  careful  inves- 
tigation was  made  of  each  applicant,  and  admission  granted  when 
the  circumstances  warranted  it.  But  it  was  the  rare  exception 
when  this  investigation  was  made  by  a  trained  worker.  Nearly 
always  it  was  made  by  single  members  or  committees  of  the  board 
of  managers,  volunteers,  ordinarily  untrained  for  such  delicate 
tasks,  and  usually  unable  to  take  the  time  to  make  the  investiga- 
tion properly.  Even  when  the  inquiry  was  made  by  the  superin- 
tendent, or  a  paid  worker,  it  was  often  with  little  conception  of  the 
problems  involved  or  of  how  it  should  be  undertaken.  This 
clearly  indicates  that  there  should  be  a  much  more  extensive  use 
of  physical  and  psychological  examinations  by  capable  diagnos- 
ticians. 

2.    The  Need  of  Special  Investigation 

It  should  be  recognized  that  at  the  threshold  of  every  insti- 
tution there  is  needed  the  broadest  social  vision  and  the  wisest 
judgment,  lest  injustice  be  done  or  the  highest  welfare  of  proposed 
wards  ignored.  Here  should  be  asked  the  most  searching  ques- 
tions, to  determine  not  merely  whether  or  not  there  is  genuine 
need  which  would  class  the  child  as  a  dependent,  but  also  just  how 
an  ascertained  need  should  be  met. 

*A  recent  publication  of  the  Russell  Sage  Foundation  entitled  Elements  of 
Record  Keeping  for  Child-Helping  Organizations,  by  Georgia  G.  Ralph,  of  the 
Department  of  Child-Helping,  will  be  invaluable  as  a  guide  to  the  best  record  forms 
used  by  the  most  progressive  social  workers  in  the  United  States. 

240 


GENERAL    SUGGESTIONS    AND    RECOMMENDATIONS 

Rightly  undertaken,  such  investigation  often  develops  a  sur- 
prising amount  of  resources,  both  financially  and  in  latent  ability, 
which,  if  not  utilized  for  the  child  in  question,  would  remain  latent 
or  be  squandered  in  some  other  direction.  Ready  admission  of  a 
child  to  an  orphanage  has  resulted  all  too  often  in  the  quick  re- 
marriage of  a  widowed  or  divorced  mother  or  father,  and  a  future 
disregard  of  the  child  of  the  first  marriage.  A  ready  acceptance  of 
an  illegitimate  child,  with  little  or  no  definite  inquiry,  has  too  often 
left  the  door  wide  open  for  the  carefreed  mother  to  pass  out  to  a 
life  of  degrading  immorality. 

Often,  also,  there  are  bonds  of  kinship  beyond  those  of  the 
first  degree  which  should  be  drawn  upon  before  the  child  is  placed 
in  the  hands  of  strangers  or  made  a  permanent  inmate  of  an  insti- 
tution. Relatives  are  generally  willing  to  come  to  the  relief  of 
overburdened  parents  or  homeless  children,  if  the  matter  is  properly 
and  tactfully  presented  to  them.  If  relatives  are  not  willing  to 
spend;  and  be  spent  willingly  for  those  of  their  own  blood,  one  of 
the  finest  inheritances  of  family  life  is  ignored  and  nullified.  It  is 
a  duty  of  the  social  worker  to  point  out  such  opportunities  and  to 
urge  aid  to  relatives  up  to  the  point  of  real  sacrifice.  The  common 
custom  of  institutions  and  possibly  of  some  agencies,  to  receive 
children  readily,  without  previous  investigation  on  this  point,  is 
greatly  to  be  deprecated. 

Thorough  investigation  of  applicants  for  admission  to  insti- 
tutions, as  well  as  suitable  supervision  of  children  dismissed  from 
them,  by  trained  workers,  are  special  requirements  for  efficient 
service.  Both  investigation  and  supervision  are  of  great  impor- 
tance, and  standard  work  is  impossible  without  them. 

3.     The  Value  of  Systematic  Study 

The  lack  of  trained  workers  to  acquire  exact  facts  concerning 
institutional  charges  and  of  adequate  records  in  which  to  register 
them  for  future  use,  prevents  systematic  study  of  causes  and  con- 
ditions. Everywhere  today  the  question  "why?"  is  being  asked. 
Most  of  the  children's  homes  and  orphanages  of  Pennsylvania  can 
give  little  response  to  the  insistent  query,  "Why  must  we  have  this 
constant  army  of  juvenile  dependents  and  whence  does  it  come?" 

241 


CHILD   WELFARE    WORK    IN    PENNSYLVANIA 

These  deficiencies  not  only  limit  studies  for  the  prevention 
of  dependency,  but  also  hinder  the  proper  care  of  the  children 
themselves.  The  results  of  scientific  investigation  and  examina- 
tion are  essential  aids  to  the  study  of  their  present  individual  needs, 
and  to  all  plans  for  their  future  welfare. 

There  is  also  throughout  the  state  a  deplorable  lack  of  under- 
standing as  to  the  best  methods  of  child-care,  from  the  modern 
point  of  view.  While  a  few  of  the  officers  and  managers  of  most 
of  the  institutions  are  in  sympathy  with  modern  methods,  there 
are  so  many  conservatives  in  control  that  advance  is  very  slow. 
The  inevitable  results  of  ancient  ways  and  equipments  are  still 
plainly  visible.  Old-fashioned  routine  system  and  mass  care  in 
congregate  institutions  continue  to  suppress  individual  traits,  and 
prevent  a  normal  and  proper  development.  Systematic  and 
scientific  study  tend  to  the  grading  up  of  all  institutions  toward 
standardization. 

4.     False  Economy* 

This  leads  naturally  to  the  so-called  economy  of  manage- 
ment which  uses  in  some  cases  too  few  workers,  and  in  many  other 
cases  workers  untrained  and  unadapted  to  such  service,  simply  to 
save  a  little  money. 

Very  few  institutions  are  lacking  in  really  altruistic  spirit 
and  intentions.  The  matrons  and  most  of  the  subordinates  are 
quite  universally  loving  and  sympathetic.  Also,  with  few  excep- 
tions, they  are  mentally  and  physically  overtaxed,  burdened  with 
excessive  strain  and  long  hours,  and  sadly  underpaid.  Mothers 
may  stand  severe  toil,  nervous  anxiety,  long  hours  of  responsibility, 
and  the  irritation  of  multiplied  household  details,  without  becoming 
cross  and  unreasonably  dictatorial  toward  their  children;  but  the 
hired  toiler  in  an  institution  who  can  retain  equanimity  of  spirit 
and  sweetness  of  disposition  while  caring  under  such  conditions  for 
other  people's  children  must  be  far  above  the  average  in  maternal 
qualities  and  the  higher  characteristics  of  womanhood.  There- 
fore, with  hard  work,  heavy  responsibilities,  and  low  wages  con- 
spiring against  the  institutional  working  forces,  it  is  no  wonder 

*  For  an  extended  discussion  of  tiiis  and  other  points  of  similar  importance 
see  A  Child  Welfare  Symposium,  supplement  to  this  volume,  p.  78.  Article  by 
Frank  D.  Witherbee  on  Standardization  of  institutional  Care. 

242 


GENERAL    SUGGESTIONS    AND    RECOMMENDATIONS 

that  it  is  difficult  in  many  institutions  to  attract  and  retain  efficient 
workers;  and  naturally  the  children  receive  inferior  care  and  train- 
ing. 

Another  reason  for  the  unrest  and  frequent  changes  among 
institutional  workers  is  the  nagging  supervision  many  of  them 
receive  from  officials  and  managers.  If  a  person  is  capable  of 
filling  the  position  of  matron  or  superintendent,  he  or  she  should 
be  given  general  instructions  and  then  be  held  responsible  for 
results.  For  a  trustee  or  manager  to  come  into  the  institution  and 
countermand  the  executive's  orders,  or  direct  details  naturally 
under  the  hand  of  the  matron  or  superintendent,  is  unbearably 
humiliating.  To  force  a  supposed  executive  officer  to  appeal  to 
a  committee  or  await  a  meeting  of  the  board  before  settling  minor 
details  of  methods  or  management  is  mortifying  to  the  officer,  poor 
policy  for  the  institution,  and  a  hindrance  to  its  proper  adminis- 
tration. One  of  the  advance  movements  to  be  promoted  all  over 
the  state  is  a  better  understanding  between  institution  officials  and 
their  managing  boards,  and  higher  average  salaries  and  wages  for 
both  executives  and  subordinate  workers.  Only  thus  can  higher 
types  of  men  and  women,  and  those  better  trained  for  their  jobs, 
be  obtained  and  retained  in  child  welfare  work. 

5.     Changes  in  Type  and  Location 

Institutions  with  cottage  plants  and  country  sites  are  as  yet 
few  in  number  as  compared  with  those  retaining  congregate  plants 
and  methods,  and  city  locations.  It  is  a  matter  of  great  regret 
that  several  important  institutions,  forced  to  abandon  plants  that 
were  crowded  and  inadequate,  have  rebuilt  on  ground  that  is 
either  now  surrounded  by  the  city  or  that  will  cease  to  be  country 
in  a  few  years'  time.  Modern  equipments  can  not  altogether  make 
up  for  confined  locations;  and  when  the  old  institutional  type  and 
the  mass  treatment  of  wards  are  retained,  as  in  some  cases,  the 
regret  is  decidedly  increased. 

6.     Physical  Conditions 

The  general  average  of  physical  care  is  good;  some  of  it  is 
excellent;  very  little  of  it  is  so  neglectful  and  ignorant  as  to  be 

243 


CHILD   WELFARE    WORK    IN    PENNSYLVANIA 

termed  vicious.  The  faults  are  mostly  due  to  custom  and  a  con- 
servatism which  fails  to  study  modern  ideas.  When,  however, 
such  highly  contagious  diseases  as  scabies  and  impetigo,  or  ring-, 
worm  of  the  scalp,  are  carelessly  treated  without  segregation,  and 
little  understanding  is  shown  of  the  communicable  nature  of  tuber- 
culosis, as  in  some  institutions,  the  need  of  authoritative  inspection 
to  enforce  modern  standards  of  health  is  clearly  manifest. 

7.     Education 

The  education  of  children  in  the  homes  and  orphanages  varies 
greatly  in  method  and  efficiency.  Many  send  the  children  to  the 
public  schools,  where,  by  mingling  with  other  children  who  live  in 
their  own  homes,  they  receive  marked  stimulus  to  progress,  and 
in  most  instances  a  better  education.  In  other  cases,  for  religious 
or  other  reasons,  schools  are  conducted  more  or  less  efficiently 
within  the  institutions.  Those  whose  construction  and  conditions 
are  most  faulty  and  those  whose  physical  and  medical  care  of  their 
wards  is  very  imperfect,  often  find  public  school  training  impossi- 
ble because  of  frequent  quarantine  on  account  of  contagious  dis- 
eases. It  is  fair  to  say  that  the  interior  educational  facilities  of 
some  institutions  are  of  a  high  order,  and  their  work  apparently 
excellent. 

8.     Mentally  Deficient  Children* 

There  are  but  few  institutions  that  carefully  study  their 
wards  to  determine  their  mental  powers;  to  learn  whether  or  not 
they  are  normal  and  capable  of  real  development.  Even  a  casual 
observer,  in  visiting  institutions,  readily  notes  many  children  so 
distinctly  of  deficient  mentality  as  to  make  their  close  association 
with  other  children  a  matter  of  grave  concern.  Those  of  this  type, 
especially  if  viciously  inclined,  should  not  be  housed  in  free  rela- 
tions with  normal  children.  Yet  no  serious  effort  has  been  made 
up  to  this  time  to  secure  their  removal  to  institutions  suited  to 
their  care.  The  main  reason  probably  is  the  lack  of  appropriate 
institutions  for  the  feeble-minded. 

*  Chapter  XXVIII,  p.  266,  is  entirely  devoted  to  a  discussion  of  the  care 
and  segration  of  the  feeble-minded;  see  also  A  Child  Welfare  Symposium,  supple- 
ment to  this  volume,  p.  32.  Article  by  Mrs.  .Martha  P.  Falconer  on  The  Wayward 
Girl. 

244 


I'ordi  i.f  Mjin   lUiilJini;,  .in. I   I  ,ini 


Dairy  Herd  at  St.  Paul's 
St.    Pall's  Orpilvns'    Ho.mi  .  (ireenville.      (Soo  p.  180) 


Two  of  the  Cottages 


l|^^^«r 

k^jjkil 

iiif? 

1^    "W^              — . 

■ 

^  ^^H|^vrMJlfliHHfiL_-L..^_- 

|H 

Bill 

1 

An  Orphan  Boy  An  Orphan  Girl 

Presbyterian  Orphanage  of   Pennsylvania,  Philadelphia.     (See  p.  179) 


GENERAL    SUGGESTIONS    AND    RECOMMENDATIONS 

The  problem  of  the  feeble-minded  is  vitally  related  to  every 
agency  executive  and  institution  superintendent.  Some  agencies 
blind  themselves  carelessly  or  wilfully  to  constitutional  mental 
deficiencies,  and  knowingly  or  ignorantly  place  morons  and  high 
grade  imbeciles  in  foster  homes,  where  only  normal  children  are 
expected.  Such  children  should  not  be  placed  in  family  homes 
without  a  frank  and  full  understanding  in  the  matter.  The  num- 
ber of  mentally  deficient  children  annually  handled  by  the  agencies 
or  in  care  in  the  orphanages  and  homes  must  be  counted  in  hun- 
dreds. Multitudes  more,  even  counted  in  thousands,  are  in  private 
homes,  and  are  frequently  found  in  the  great  army  of  families  which 
call  for  the  perennial  ministration  of  the  charity  organizations. 
This  subject  is  so  important  that  an  entire  chapter  is  subjoined  to 
elaborate  the  situation  in  Penns)ivania,  and  the  prospects  of  future 
provision  for  these  unfortunates. 

9.     State  Aid* 

Financial  aid  is  given  by  the  state  to  a  very  large  number  of 
child-caring  institutions.  While  the  percentage  of  aid  to  the  entire 
expense  is  usually  below  50,  and  in  most  cases  the  aid  is  amply 
earned  by  service  rendered,  it  is  still  true  that  there  is  no  scientific 
basis  for  the  appropriations.  A  small  local  hospital  or  home, 
possessing  a  pull,  may  and  often  does  receive  more  than  a  state- 
wide agency  caring  for  hundreds  of  children.  The  principles  upon 
which  a  sound  policy  can  be  based  have  never  been  adequately  set 
forth  or  made  the  grounds  of  action.  The  constitutional  provi- 
sions affecting  appropriations  to  charitable  agencies  of  definite 
religious  affiliations  are  constantly  violated.  The  entire  situation 
is  clouded  by  the  lobbying  of  institutional  representatives,  and  it  is 
claimed  that  appropriations  to  charitable  institutions  are  fre- 
quently used  to  secure  partisan  advantage  or  political  support, 
if  aid  is  to  be  given  by  the  state  there  should  be  a  definite 
policy,  with  a  scientific  basis,  and  the  funds  should  be  distributed 
according  to  actual  service  rendered,  and  never  because  of  per- 
sonal favor,  or  to  influence  political  campaigns. 

*  For  a  general  discussion  of  state  appropriations  see  A  Child  Welfare 
Symposium,  supplement  to  this  volume,  pp.  118  and  125.  Articles  by  Joseph  A. 
Beck  on  Public  Appropriations  to  Private  Institutions,  and  by  William  Bradford 
Buck  on  Principles  and  Standards  in  Granting  State  Aid. 

245 


CHILD   WELFARE    WORK    IN    PENNSYLVANIA 

Roy  Smith  Wallace,  general  secretary  of  the  Pennsylvania 
Society  to  Protect  Children  from  Cruelty,  states  the  position  of 
many  of  the  leading  social  workers  of  the  state  in  these  words: 
"The  present  system  in  this  state  for  the  care  of  dependent  children 
is  in  some  respects  inadequate  and  in  others  unsatisfactory.  It  is 
my  belief  that  the  public  should  be  responsible  for  at  least  the 
cost  of  their  care.  It  matters  little  whether  the  cost  is  borne  by 
the  state  or  by  the  counties  or  by  both.  Probably  it  would  be 
wisest  to  adopt  a  half-and-half  policy,  because  the  present  system 
provides,  although  inadequately,  for  state  and  county  responsi- 
bility. The  present  system  allows  the  state  to  appropriate  lump 
sums  to  child-caring  agencies,  among  other  state  charities,  and  also 
allows  the  county  poor  officers  and  county  commissioners,  on 
court  order,  to  pay  for  the  care  of  dependent  children.  I  should 
therefore  say  that  for  Pennsylvania  a  half-and-half  system  would 
fit  best  to  already  existing  custom;  but  insist  that  it  is  essential 
that  all  public  appropriations  to  private  charities  be  made  upon 
a  per  capita  basis,  and  only  for  such  wards  as  have  been  recognized 
as  public  charges  by  a  proper  public  official." 

10.    Juvenile  Court  Work* 

It  is  deeply  to  be  regretted  that  the  juvenile  court  has  not 
advanced  in  Pennsylvania  as  rapidly  as  in  many  states.  The  old 
formalities  of  criminal  procedure  are  retained  in  nearly  all  the 
counties.  In  Pittsburgh  there  is  still  a  rotation  of  judges  which  is 
one  factor  against  the  court's  success;  and  in  Philadelphia  this 
was  not  remedied  until  January,  1914.  The  same  judge  should 
preside  for  at  least  an  annual  period.  The  mandatory  clauses  in 
the  act  of  1903,  requiring  the  appointment  of  regular  probation 
officers  and  the  establishment  in  each  county  of  a  detention  home 
other  than  the  common  jail,  have  been  disobeyed  in  some  cases 
and  evaded  in  others.  Only  a  few  counties  have  suitable  deten- 
tion homes,  although  it  is  now  ten  years  since  the  passage  of  the 
law.  It  is  hoped  that  each  of  the  populous  counties  will  soon 
assign  to  juvenile  court  work  an  able  judge,  who  will  always  be 

*  For  present  situation  see  Chapter  V,  page  66,  and  A  Child  Welfare 
Symposium,  supplement  to  this  volume,  p.  51.  Article  by  H.  P.  Richardson  on 
The  Juvenile  Court  in  Pennsylvania. 

246 


GENERAL    SUGGESTIONS    AND    RECOMMENDATIONS 

accessible,  and  high  class  probation  officers,  in  sympathy  with  the 
principles  involved,  it  has  also  been  urged  that  a  state  probation 
commission  be  created,  with  large  scope  and  powers  to  carry  on  the 
work  in  the  sparsely  populated  parts  of  the  state. 

II.     Placing-out  Work* 

One  of  the  greatest  needs  of  child  welfare  work  in  Pennsyl- 
vania is  a  rearrangement  and  a  standardization  of  the  placing-out 
of  children  in  foster  homes.  This  work  is  related  to  both  agencies 
and  institutions.  During  the  year  studied  the  agencies  placed 
1,171  children  in  family  homes,  while  175  private  institutions 
placed  1,258.  Therefore,  all  child  welfare  workers  are  personally 
interested  in  this  important  method  of  child-care. 

In  many  of  the  orphanages  and  children's  homes  the  placing- 
out  is  seldom  done  until  the  boy  or  girl  is  of  an  age  requiring  such 
action,  say  fourteen  to  sixteen  years.  Such  institutions  often 
say  that  they  do  no  placing-out  work,  but  when  pinned  down  con- 
fess that  at  the  departure  of  their  wards  they  secure  homes,  or 
jobs  including  homes,  for  them,  so  that  such  children  are  started 
in  the  outside  world  under  the  authority  of  their  guardianship  be- 
fore they  are  thrown  entirely  upon  their  own  resources.  Arrange- 
ments of  this  kind  are  as  truly  placing-out  as  though  the  work  was 
done  by  a  regular  agency.  It  is  not  the  numbers  annually  placed, 
but  the  fact  and  the  method,  that  count.  So  practically  all  insti- 
tutions do  some  placing-out  work. 

There  are  three  principal  defects  in  institutional  placing-out 
work,  as  long  experience  has  demonstrated.  First,  except  in  large 
and  wealthy  institutions,  which  are  able  to  afford  trained  placing- 
out  agents,  there  is  generally  only  a  superficial  investigation  of 
the  applicant,  his  home,  and  its  environment.  Second,  there  is 
little  intelligent  effort  to  fit  the  child  to  the  home  and  its  location. 
Third,  there  is  very  little  after-supervision  of  the  home  and  the 
child. 

There  is  a  tendency  in  many  orphanages  to  retain  children 
as  long  as  they  are  doing  well  in  the  institution,  and  to  get  rid  of 

*  For  a  discussion  of  child-placing  in  families  see  A  Child  Welfare  Sympo- 
sium, supplement  to  this  volume,  p.  95.  Article  by  Edwin  D.  Solenberger  on 
Standardization  of  Placing-out  Work. 

247 


CHILD    WELFARE    WORK    IN    PENNSYLVANIA 

them  by  placing  them  out  when  they  become  restless,  get  discon- 
tented, or  make  trouble.  Naturally,  it  is  difficult  to  secure  homes 
for  these  wayward  children,  and  the  results  of  such  placements 
when  known  are  usually  unfavorable;  hence,  institution  officials 
are  frequently  confirmed  by  them  in  their  notion  that  placing-out 
is  like  a  reform  school — a  last  resort — and  that  it  is  best  to  keep 
their  wards  as  long  as  possible. 

But  placing-out  under  such  conditions  is  unfair  to  the  child, 
to  the  system,  and  to  society.  Placing-out  work  should  not  be 
done  in  any  such  way,  and  the  system  should  not  be  judged  by 
such  apparent  results.  Ordinary  institutions  can  not  provide  the 
trained  agents  to  do  this  work  wisely  and  well.  It  is  a  question 
whether  even  large  and  wealthy  institutions  can  afford  to  provide 
suitable  agents  and  do  their  own  placing-out.  The  development 
of  modern  ideas  and  the  increased  demand  for  limitation  of  efforts 
and  close  co-operation  have  made  the  properly  equipped  placing- 
out  agency  a  necessity.  We  should  demand  of  the  agencies  a  high 
quality  of  work  and  assurance  of  permanence  of  service.  These 
being  assured,  practically  all  placing-out  in  families  should  be 
entrusted  to  them. 

To  put  the  requirements  of  placing-out  in  a  single  sentence, 
it  should  be  done  by  agencies  or  institutions  only  after  thorough 
investigation  of  the  applicant,  his  home  and  its  environment;  the 
child  should  be  thoroughly  studied  and  carefully  fitted  into  the 
new  relationships  and  location;  and  both  the  home  and  the  child 
should  be  kept  under  personal  and  adequate  supervision  until 
the  latter  receives  legal  adoption  or  attains  legal  age. 

A  few  of  the  principal  agencies  are  doing  this  work  well  and 
in  accord  with  modern  ideas  and  methods;  some  others  need  to  be 
brought  up  to  a  standard,  especially  in  regard  to  the  investigation 
of  offered  homes  and  the  supervision  of  placed-out  children. 
There  is  a  tendency  to  depend  too  much  on  volunteer  effort  and 
there  is  great  need  of  co-operation,  consolidation,  and  standardiza- 
tion. We  recommend  the  greatly  increased  use  of  trained  agents. 
We  also  urge  a  much  larger  degree  of  co-operation  between  the 
institutions  for  permanent  care  and  the  best  agencies,  which  are 
equipped  for  the  necessary  investigation  and  supervision. 

Agency  placing-out  has  two  branches:  the  temporary  care 
248 


GENERAL    SUGGESTIONS    AND    RECOMMENDATIONS 

of  children  in  families,  their  board  being  paid,  until  their  homes 
can  be  rehabilitated,  their  relatives  found,  or  delayed  court  action 
taken;  and  the  permanent  care  of  homeless  or  dependent  children 
in  free  homes  as  regular  members  of  families.  It  hardly  need  be 
said  that,  whether  it  be  for  a  short  time  as  a  pay  boarder  or  per- 
manently as  one  of  the  family,  every  home  to  receive  a  child  should 
be  studied  as  to  its  fitness  for  such  service,  and  no  home  should  be 
accepted  contrary  to  the  welfare  of  the  child. 

W'e  urge  that  special  efforts  be  made  to  place  in  family  homes 
all  permanently  homeless  children  who  are  physically  and  mentally 
normal.  There  may  be  some  of  normal  mentality  who  will  require 
temporary  institutional  care  in  order  that  they  may  receive  special 
medical  treatment  or  obtain  needed  surgical  aid.  Placement  in 
family  homes  is  much  easier,  and  usually  the  results  are  much  more 
satisfactory  when  the  placement  is  made  before  the  child  is  ten 
years  of  age.  Nevertheless,  many  children  above  ten  years  of 
age  may  be  safely  placed  in  families  if  the  families  are  properly 
selected,  the  children  selected  for  them,  and  adequate  super- 
vision given  after  the  child  is  located  in  the  home.  This  will  leave  in 
the  care  of  the  institutions  those  who  are  older  and  especially  those 
in  need  of  discipline,  or  who  are  physically  or  mentally  abnormal. 

The  placing-out  in  families  of  children  classed  as  delinquent 
is  a  special  problem.  Frequently  it  happens  that  a  so-called 
delinquent  boy  or  girl  proves  wholly  amenable  to  discipline  and 
fits  perfectly  into  normal  family  life  when  given  opportunity  in  a 
well-selected  home.  The  placeableness  of  a  supposed  delinquent 
should  be  determined  by  a  trained  social  worker  after  a  careful 
study  of  all  available  facts  and  conditions. 

12.     Misguided  Benevolence 

Dr.  Hastings  H.  Hart  says:  "The  ordinary  principles  of  com- 
mon sense  would  dictate  that  where  such  large  and  sacred  interests 
are  involved  the  proposition  should  be  considered  with  great  care 
and  deliberation,  and  that  information  should  be  sought  from 
every  available  source;  yet  it  is  a  common  thing  for  institutions  to 
be  established  on  impulse,  without  the  aid  of  expert  advice."* 

*  Hart,  Hastings  H.:  Cottage  and  Congregate  Institutions  for  Children, 
p.  I.  Russell  Sage  Foundation  Publication.  New  York,  Charities  Publication 
Committee,  1910. 

249 


CHILD    WELFARE    WORK    IN    PENNSYLVANIA 

Sometimes  the  plans  have  not  been  made  upon  impulse,  but  are 
none  the  less  hampering  and  injudicious  if  they  are  not  flexible 
enough  to  meet  the  needs  of  advancing  civilization. 

Pennsylvania  institutions  show  many  examples  of  unwise 
eflForts  to  aid  unfortunate  children  by  the  erection  or  endowment 
of  homes  to  be  occupied  by  a  certain  limited  class.  Without  the 
least  criticism  of  the  intentions  of  such  donors,  a  few  examples  may 
be  given  of  such  restrictions  in  otherwise  magnificent  benevolence. 

Girard  College,  which  has  a  long  and  in  the  main  excellent 
record  of  work  done  for  orphan  boys  of  Pennsylvania,  is  the  most 
notable  example.  This  institution,  the  wealthiest  orphanage  in 
the  world,  possessed  in  191 1  assets  amounting  to  $34,000,000. 
As  there  is  a  continued  and  rapid  increase  in  the  value  of  its  prop- 
erties and  endowment,  it  is  probable  that  now  (February,  191 5) 
the  assets  are  about  $38,000,000.  These  almost  unlimited  poten- 
tialities for  practical  beneficence,  by  the  terms  of  the  will  of  Stephen 
Girard,  are  confined  to  "poor  white  male  orphans,  between  the 
ages  of  six  and  ten  years."  A  court  decision  (Soohan  vs.  City,  33 
Pa.  State  Reports,  p.  9)  by  a  liberal  interpretation  of  the  term 
"orphan"  as  used  in  this  will,  makes  it  "a  fatherless  child,"  so  as 
to  include  both  full  orphans  and  boys  with  living  mothers.  Never- 
theless, the  generous  donor's  restriction  has  greatly  limited  the 
work  of  the  institution. 

The  Thomson  School  for  Girls,  also  of  Philadelphia,  has 
total  assets  amounting  to  nearly  $2,000,000.  The  year  of  our 
study  this  strong  organization  devoted  its  entire  benevolent  activ- 
ity to  24  children  because  by  the  terms  of  the  will  the  privileges  of 
the  school  are  only  for  the  daughters  of  men  who  have  been  killed 
while  in  the  discharge  of  their  duties  in  the  service  of  the  Pennsyl- 
vania Railroad  Company  and  its  affiliated  lines.  Girls  between 
four  and  ten  years  of  age  are  preferred,  but  applications  in  behalf 
of  older  girls  "will  be  received  and  considered  by  the  board  of 
trustees  as  vacancies  may  exist."  The  restrictions  so  imposed 
evidently  greatly  limit  the  possible  good  of  this  great  endowment. 

Other  existing  institutions  are  also  striking  examples  of 
unwisely  limited  benefactions.  This  sketch  would  be  seriously 
incomplete  did  it  not  also  mention  two  bequests  of  evidently 

250 


GENERAL    SUGGESTIONS    AND    RECOMMENDATIONS 

altruistic  character,  founding  and  endowing  new  institutions,  but 
narrowly  limiting  the  beneficiaries  they  are  to  serve. 

The  Carson  College  for  Orphan  Girls  was  established  by  the 
will  of  the  late  Robert  N.  Carson  of  Philadelphia.  Of  his  large 
estate,  after  paying  all  other  bequests,  a  residue  amounting  to 
about  $5,000,000  was  devoted  to  the  above  named  institution. 
By  the  terms  of  the  will  there  is  set  apart  "not  less  than  Si, 000,000 
to  be  used,  applied  and  expended  in  the  erection  of  buildings  for 
said  college."  The  will  locates  the  college  on  a  tract  of  100  acres, 
value  $1 ,000,000,  close  to  Chestnut  Hill,  Philadelphia.  The  remain- 
ing $3,000,000  are  reserved  as  a  perpetual  endowment.  The 
residential  buildings  of  the  institution  are  to  be  of  the  cottage  type, 
the  capacity  of  each  cottage  limited  to  25  girls.  The  beneficiaries 
are,  "poor,  white,  healthy  girls,  both  of  whose  parents  shall  be 
deceased";  none  shall  be  admitted  "under  the  age  of  six  years  or 
over  the  age  of  ten  years;  and  they  shall  be  discharged  from  the 
said  college  at  the  age  of  18  years  or  earlier."  The  restriction 
admitting  only  full  orphan  white  girls,  healthy,  and  "of  at  least 
average  mental  capacity,"  between  six  and  ten  years  of  age,  limits 
too  narrowly  the  service  possible  under  this  magnificent  bequest. 
In  a  letter  dated  February  5,  191 5,  the  secretary  of  the  board  of 
trustees  mentions  the  hampering  restrictions  of  the  will,  and  says: 
"It  may  be  possible  to  make  judicial  changes  which  will  give  the 
institution  the  fullest  scope  demanded  by  experience." 

The  Ellis  College  for  Fatherless  Girls  was  also  established 
by  will.  Charles  E.  Ellis  of  Philadelphia,  who  died  in  1909, 
left  an  estate  of  about  §4,000,000  to  found  and  endow  an 
institution  for  girls,  modeled  somewhat  after  Girard  College  for 
boys.  The  trustees  of  the  estate  purchased  in  19 12  a  site  of  231 
acres  near  Langhorne,  Bucks  County.  Buildings  costing  $250,000 
will  be  erected  in  the  near  future.  In  outlining  his  plan  for  the 
establishment  of  the  institution,  Mr.  Ellis  said  in  his  will  that  it  is 
to  be  "a  school  for  the  purpose  of  educating  and  maintaining  white 
fatherless  girls  who  shall  not  be  at  the  time  of  their  admission  more 
than  13  years  of  age,  until  they  arrive  at  the  age  of  17  years,  under 
the  condition  that  such  school  shall  be  nonsectarian  and  that  the 
admission  of  students  therein  shall  be  limited  to  white  girls  who  at 
the  time  of  their  admission  are  bona  fide  residents  of  the  city  and 

251 


CHILD    WELFARE    WORK    IN    PENNSYLVANIA 

county  of  Philadelphia,  or  of  the  particular  county  in  which  the 
said  institution  or  school  shall  be  located."  Here  are  double 
restrictions  limiting  the  possible  beneficiaries.  They  must  be  full 
or  half  orphan  white  girls  under  thirteen  years  of  age,  and  must 
be  residents  of  one  of  the  two  designated  counties  of  Pennsylvania. 
The  college  is  to  be  "a  public  charity,  and  no  one  except  the  officers 
and  employes,  and  the  trustees  as  such,  shall  receive  compensation 
for  their  services." 

It  is  an  unquestionable  fact  that  small  orphan  girls  are  already 
well  provided  for,  and  that  there  is  less  need  of  new  institutions  for 
them  than  for  any  other  class.  Other  examples  might  be  given, 
but  are  not  needed.  We  can  only  hope  that  in  some  way  these 
and  other  funds  similarly  limited  in  their  use  may  be  released,  so 
as  to  work  at  their  full  capacity  for  the  uplift  of  humanity,  accord- 
ing to  the  changing  needs  of  the  new  era. 

13.    A  Children's  Code 

The  statutes  of  Pennsylvania  relating  to  children  are  numer- 
ous, involved,  overlap  each  other,  and  in  some  cases  are  said  to 
contradict  each  other.  The  social  worker  is  frequently  at  a  loss 
to  know  which  law  to  invoke,  or  how  to  avoid  conflict  with  workers 
in  other  welfare  or  legal  departments.  The  much  overworked 
word  "chaotic"  seems  to  apply  better  than  any  other  to  the  unsys- 
tematic mass  of  laws  now  in  force  in  Pennsylvania.  The  way  out 
is  by  a  carefully  arranged  children's  code;  that  is,  the  codifying 
of  all  laws  relating  to  children.  Ohio  has  set  a  good  example. 
The  children's  code  recently  adopted  by  that  state  would  not  fit 
the  conditions  in  Pennsylvania  perfectly,  but  a  wise  and  able  com- 
mission can  make  a  clear,  concise,  and  harmonious  code  for  Penn- 
sylvania that  will  be  a  blessing  to  coming  generations.  Such  a 
commission  should  be  ordered  by  the  legislature  and  appointed 
by  the  governor;  and  such  a  code  should  be  carefully  compiled 
and  speedily  adopted. 

14.     Public  Charities  Association 

A  new  organization  to  promote  "efficient  state  charities  for 
Pennsylvania"  began  its  work  January,  191 3,  under  the  name  of 
252 


I  hr  I'l.inl  .in  I'm,'  Sirrri 


A  Coiif^ru.nau-  Dining  Room 
St.  Jost:i'n's   Housk  for   Homhlhss   I'.ovs,  I'hiladclphia.     (See   lable  17,  p.  202) 


I  he  Orphana.yc 


A  ('.roup  of  Girls 


Twenty  of  the  Boys 
St.  Vincent's  Orphan  Asylum,  Tacony,  Philadelphia.     (See  p.  199) 


GENERAL    SUGGESTIONS    AND    RECOMMENDATIONS 

the  Public  Charities  Association.  From  their  first  annual  report 
is  quoted  the  following  story  of  the  origin  and  purposes  of  the 
organization. 

The  organization  of  The  Public  Charities  Association  was  the 
natural  and  inevitable  outgrowth  of  an  increasing  public  interest  in  the 
charitable  problems  of  our  state.  For  several  years  a  feeling  has  been 
developing  among  citizens  active  in  philanthropic  work  throughout  the 
state  that  Pennsylvania's  enormous  annual  expenditures  for  charities 
have  not  been  justified  by  the  actual  results  achieved.  For  years  a 
persistent  protest  has  been  heard  from  medical  conventions,  women's 
club  meetings,  and  social  workers'  conferences  that  the  method  of  mak- 
ing charitable  appropriations  in  Pennsylvania  was  unscientific  and  unjust 
and  resulted  in  the  neglect  of  the  state's  wards.  From  various  and  in- 
creasing sources  the  system  of  state  appropriations  to  private  charities 
has  been  discredited  on  five  specific  counts: 

(i)  That  it  crippled  our  public  institutions  and  prevented  the 
fulfillment  of  our  public  obligations. 

(2)  That  it  encouraged  the  development  of  unnecessary  private 
charities. 

(3)  That  it  discouraged  private  philanthropy. 

(4)  That  it  confused  public  responsibility  with  private  benevo- 
lence and  hindered  the  development  of  a  uniform  and  clear-cut 
s\'stem  of  charities. 

(5)  That  it  carried  our  charities  into  politics  and  resulted  in  gross 
political  abuses. 

This  widespread  but  unorganized  sentiment  reached  its  climax  at 
the  Fourth  Pennsylvania  Conference  of  Charities  and  Correction  at 
Wilkes-Barre  in  October,  1912.  A  Committee  on  Standards  and  Classi- 
fication in  Granting  State  Aid  reported  to  the  Conference  on  the  weak- 
nesses and  incongruities  of  the  present  system  of  making  appropriations, 
and  declared  that  "appropriations  from  the  state  treasury  should  not  be 
made  to  charities  under  private  management  until  the  reasonable  needs 
of  the  state  have  been  fully  met  and  an  adequate  system  of  state  insti- 
tutions fully  developed."  This  report  was  signed  by  Mr.  Allen  T.  Burns 
of  Pittsburgh;  Hon.  Franklin  B.  McClain  of  Lancaster;  Mr.  William  B. 
Buck  of  Philadelphia;  Hon.  Fred  W.  Fuller  of  Wilkes-Barre,  and  Dr. 
H.  J.  Sommer  of  Hollidaysburg.  Mr.  Bromley  Wharton,  a  member  of 
the  Committee,  was  unwilling  to  sign  the  report,  and  Hon.  Robert  K. 
Young,  though  endorsing  its  conclusions  emphatically,  declined  to  sign 

253 


CHILD   WELFARE    WORK    IN    PENNSYLVANIA 

it  on  the  grounds  that  public  duties  had  prevented  him  from  assisting 
materially  in  its  preparation. 

Partly  as  a  result  of  the  report  of  this  Committee,  and  partly  as  a 
result  of  a  vigorous  call  from  other  sources,  the  Conference  recommended 
the  establishment  of  a  State  Public  Charities  Association  to  take  the  lead 
in  working  out  a  just  and  efficient  system  of  charities  in  Pennsylvania. 
Messrs.  William  B.  Buck,  Riley  M.  Little,  J.  Byron  Deacon  and  many 
other  prominent  social  workers  were  active  in  making  the  plans  for  such 
an  Association.  The  splendid  success  of  the  State  Charities  Aid  Asso- 
ciation in  New  York  was  cited  as  an  example  of  the  good  that  could  be 
accomplished  by  concerted  action  in  the  right  direction. 

Simultaneously  with  the  recommendation  of  the  Conference  the 
Committee  on  Municipal  Charities  of  Philadelphia  was  completing  its 
study  of  the  public  charities  of  that  city.  It  had  found  that  the  chari- 
table responsibilities  of  the  city  were  so  confused  with  those  of  the  state 
that  state  legislation  was  necessary  to  complement  city  action  in  working 
out  a  complete  policy  for  local  charities.  Dr.  Charles  H.  Frazier,  Dr. 
George  Woodward,  Mr.  George  Vaux,  Jr.,  Dr.  D.  J.  McCarthy,  and 
others  who  have  been  instrumental  in  the  success  of  the  Committee  on 
Municipal  Charities,  advocated  the  establishment  of  a  strong  state 
organization  to  inquire  into  the  needs  of  the  state's  charities  and  to 
stimulate  and  crystallize  public  sentiment  in  favor  of  legislation  to  meet 
these  needs. 

At  the  same  time  prominent  women  in  civic  and  philanthropic 
work  were  doing  pioneer  service  in  the  launching  of  this  important  move- 
ment. Mrs.  Louis  C.  Madeira,  Mrs.  Edward  W.  Biddle,  Mrs.  H.  Gordon 
McCouch,  Mrs.  George  Woodward  and  Mrs.  Charles  J.  Rhodes,  of 
Philadelphia;  Mrs.  Martha  P.  Falconer,  of  Darling;  Mrs.  Enoch  Rauh, 
Mrs.  William  Thaw,  Jr.,  and  Miss  Mary  Flinn,  of  Pittsburgh,  and  others, 
early  recognized  the  need  of  such  an  Association  and  helped  materially  in 
affecting  its  organization. 

At  the  legislative  session  of  191 3  the  work  of  the  Association 
was  centered  upon  securing  more  efficient  charitable  legislation 
for  Pennsylvania.  Among  others  they  secured  the  passage  of 
several  bills  dealing  with  the  care  of  dependent  and  delinquent 
children.  The  Association  declares  its  ultimate  aim  to  be  "a 
system  of  state  charities  for  Pennsylvania  as  effective  as  that  in 
any  state  of  the  Union." 


254 


general  suggestions  and  recommendations 

15.     Encouraging  Features 

The  most  encouraging  thing  about  the  Pennsylvania  situa- 
tion is  the  spirit  of  progress  which  has  laid  hold  upon  some  of  the 
executives  and  managers  of  leading  agencies  and  institutions. 
They  are  seizing  all  possible  means  to  improve  the  care  and  train- 
ing of  their  wards.  They  are  employing  many  trained  workers, 
have  inaugurated  good  record  and  bookkeeping  systems,  make 
searching  investigation  of  prospective  wards,  require  careful  physi- 
cal and  mental  examination  of  all  actually  in  care,  advocate  gen- 
uine co-operation  and  division  of  effort,  and  are  constantly  enlarg- 
ing their  social  horizon. 

It  is  fairly  inspiring  to  note  what  is  being  done  by  an  elect 
few  among  the  superintendents  and  managers  of  certain  orphan- 
ages and  homes.  They  are  trying  to  work  miracles  by  faith  and 
a  little  help  from  the  people.  Most  of  them  are  burdened  with 
old,  ill-adapted  plants,  located  in  unfavorable  neighborhoods,  and 
their  institutions  generally  handicapped  by  a  lack  of  funds.  Yet 
these  workers  have  caught  a  vision  of  a  new  age,  whose  motto  is 
"fair  opportunities  for  everyone."  They  believe  that  every  child 
should  have  not  only  a  chance,  but  his  chance — the  one  best  and 
fairest  for  him.  And  they  are  utilizing  all  the  resources  within 
their  reach  to  give  their  wards,  whose  natural  sources  of  supply 
have  failed,  some  part  of  nature's  modicum  of  love  and  individual 
care. 

The  iron  is  hot  and  the  anvil  is  ready.  Let  all  social  toilers 
heave  high  their  hammers  and  with  strong  and  well-directed  blows 
so  shape  the  child  welfare  work  of  Pennsylvania  that  it  shall  have 
a  future  worthy  of  its  splendid  past. 


255 


CHAPTER   XXVII 
STATE  SUPERVISION  OF  CHILDREN'S   INSTITUTIONS 

ONE  thing  greatly  needed  to  aid  in  the  improvement  and 
standardization  of  all  child-caring  work  is  strictly  non- 
sectarian  and  nonpartisan  state  supervision.  It  will 
greatly  stimulate  advance  on  all  lines,  and  an  elevation  of  the 
standard  of  service,  if  scientific  and  intensified  supervision  is 
given  to  all  private  child-caring  institutions,  Jewish,  Catholic,  and 
Protestant.  It  is  not  enough  to  have  an  agent  or  inspector  call 
for  an  hour  once  a  year,  generally  giving  notice  in  advance  of  his 
coming  so  that  the  institution  may  be  in  trim  to  receive  him. 
More  frequent  and  lengthy  visits  at  unexpected  times,  by  a 
trained  social  worker  vested  with  of  authority,  are  a  necessity  of 
proper  supervision  of  dependent  children  and  the  institutions. 
A  single  practical  example  is  sufficient  proof  of  the  advan- 
tages of  proper  public  supervision.  The  Illinois  law  for  the  super- 
vision of  private  institutions  by  the  state  board  of  charities*  made 
it  optional  for  institutions  which  did  not  receive  children  by  com- 
mitment from  the  courts  to  accept  or  reject  state  supervision. 
After  the  system  had  been  tested,  several  institutional  boards, 
both  Catholic  and  Protestant,  voluntarily  accepted  state  super- 
vision, finding  that  it  would  be  a  positive  benefit  to  their  in- 
stitutions. Practically  all  of  the  well-managed  institutions  of 
Illinois  are  now  under  state  supervision,  the  quality  of  their  work 
has  been  improved,  and  their  methods  have  been  standardized. 
The  fact  that  they  are  under  public  supervision  increases  the  con- 
fidence of  contributors  and  of  the  general  public  in  the  institutions. 
Every  group  of  institutions  in  this  entire  study  would  be 
greatly  benefited  by  such  visitation.  To  enforce  the  mandatory 
requirements  of  the  law  would  not  be  its  main  purpose,  but  to 
extend  the  hand  of  friendship  and  to  give  wise  counsel  and  co- 
operation.    The  writer  has  often  found  suggestions  based  on  his 

*  Now  board  of  administration  of  state  charities. 
256 


STATE    SUPERVISION    OF   CHILDREN'S    INSTITUTIONS 

own  knowledge  and  experience  very  helpful  to  tried  and  puzzled 
executives  who  are  wrestling  in  twilight  with  problems  of  finance 
and  administration.  The  same  would  be  true  in  a  larger  degree 
in  the  work  of  the  non-political  state  visitor,  selected  on  the  basis 
of  social  and  scientific  training,  and  representing  both  the  authority 
of  the  commonwealth  and  the  best  modern  ideas  and  methods. 

All  existing  systems  of  state  supervision,  whether  of  public 
or  private  charities,  have  their  imperfections  and  are  properly 
subject  to  more  or  less  of  criticism.  Under  the  searchlight  of 
modern  social  knowledge,  even  those  most  recently  enacted,  and 
which  may  be  supposed  to  have  avoided  previous  mistakes,  are 
deficient  in  various  important  respects.  In  fact,  the  only  perfect 
systems  are  theoretical,  and  even  then  perfect  only  to  their  authors 
and  advocates. 

However  imperfect  the  practical  application  of  the  principle, 
the  right  and  duty  of  governmental  supervision  of  both  public  and 
private  charities  seem  now  to  be  almost  universally  conceded. 
The  supervision  of  public  charities  has  long  been  recognized  as  a 
proper  governmental  function,  and  within  the  last  decade  prac- 
tically all  opposition  to  the  principles  upon  which  supervision  of 
private  charities  are  based  has  been  withdrawn.  There  is  still 
some  bitter  controversy  over  details  of  supervisory  methods,  but 
even  that  is  dying  out  as  social  workers  are  drawn  into  closer 
association. 

At  the  National  Conference  of  Charities  and  Correction  in 
1902,  Hastings  H.  Hart,  then  superintendent  of  the  Illinois  Chil- 
dren's Home  and  Aid  Society,  laid  down  the  four  cardinal  princi- 
ples upon  which  rest  the  right  and  duty  of  public  supervision  of 
private  charities.     They  are  as  follows: 

1.  It  is  the  duty  of  the  state  to  follow  funds  appropriated 
from  the  public  treasury,  .  .  .  and  to  see  that  they  are  eco- 
nomically and  efficiently  used. 

2.  It  is  the  right  and  the  duty  of  the  state  to  supervise  pri- 
vate charities  in  the  exercise  of  its  police  powers,  for  the  protection 
of  the  life  and  health  of  those  who  are  under  the  care  of  voluntary 
organizations,  as  well  as  those  who  are  employed  in  caring  for 
them. 

257 


CHILD    WELFARE    WORK    IN    PENNSYLVANIA 

3.  It  is  the  duty  of  the  state  to  supervise  private  charities 
because  of  the  helpless  condition  of  their  beneficiaries. 

4.  Public  supervision  is  necessary  in  order  to  protect  the 
benevolent  public,  including  not  only  the  givers,  but  also  the 
institutions  themselves  and  those  who  administer  them.* 

At  the  same  conference,  the  Rev.  Father  D.  J.  McMahon, 
general  supervisor  of  Catholic  charities  of  New  York  City,  very 
suggestively  said: 

"I  do  not  think  there  is  any  private  charity  organization 
existing  today  that  ought  to  exist  which  would  fear  inspection  by 
any  state  board  of  charities.  If  it  does  fear  it,  then  there  is  reason 
why  it  should  have  a  reasonable  inspection."  f 

In  the  Conclusions  of  the  White  House  Conference,  called 
by  President  Roosevelt  in  1909,  occurs  the  following  paragraph  on 
state  inspection: 

"The  proper  training  of  destitute  children  being  essential  to 
the  well-being  of  the  State,  it  is  a  sound  public  policy  that  the 
State  through  its  duly  authorized  representatives  should  inspect 
the  work  of  all  agencies  which  care  for  dependent  children,  whether 
by  institutional  or  by  home-finding  methods,  and  whether  sup- 
ported by  public  or  private  funds.  Such  inspection  should  be  made 
by  trained  agents,  should  be  thorough,  and  the  results  thereof 
should  be  reported  to  the  responsible  authorities  of  the  institution 
or  agency  concerned.  The  information  so  secured  should  be 
confidential— not  to  be  disclosed  except  by  competent  authority."! 

At  the  National  Conference  of  Charities  and  Correction  in 
1911,  the  Rev.  Father  Francis  H.  Gavisk  of  the  Indiana  State 
Board  of  Charities  was  chairman  of  the  committee  on  state  super- 
vision.    In  the  course  of  his  remarks  he  said, 

"The  opposition  to  state  supervision  of  private  charity,  once 
so  decided,  is  gradually  lessening,  as  the  reasons  for  it  are  more 
sanely  weighed.  .  .  .  That  there  is  a  growing  sentiment  in 
favor  of  some  supervision  is  evident  from  the  utterances  at  state 
conferences  of  many  persons  connected  with  private  institutions  of 

♦National  Conference  of  Charities  and  Corrections.  Proceedings,  1902. 
pp.  130-132. 

t  Ibid.,  p.  136. 

I  Conference  on  the  Care  of  Dependent  Children.     Proceedings,  1909,  p. 

«94. 

258 


STATE    SUPERVISION    OF    CHILDREN  S    INSTITUTIONS 

charit\-.  They  recognize  the  reasons  for  such  supervision;  the 
protection  of  dependents,  the  safeguarding  of  the  purposes  of 
donors,  the  protection  of  the  benevolent  from  impostors,  the  pre- 
vention of  abuses  to  inmates,  and  the  encouragement  of  benevo- 
lence by  throwing  about  it  the  guarantee  of  public  authority  that 
the  wishes  of  the  benefactors  will  be  effectually  carried  out.  Sev- 
eral states  have  authorized  the  supervision  of  the  state  over  in- 
stitutions caring  for  dependents  and  defectives. 

"The  success  of  such  supervision  of  private  charities  will 
depend  upon  the  spirit  in  which  it  is  conducted.  ...  If  irri- 
tating and  mischievous,  it  will  add  to  the  burdens  of  the  adminis- 
trators and  the  confusion  of  the  institution;  if  kindly,  tactful  and 
wise,  it  will  help  forward  the  institution  and  encourage  its  admin- 
istrators." * 

These  quotations  represent  the  views  of  many  students  of 
this  subject  as  to  the  principle  of  state  supervision  of  public  and 
private  charities,  and  incidentally  indicate  some  of  the  prob- 
lems involved.  No  set  form  or  method  of  administration  can  be 
offered  or  recommended.  Each  commonwealth,  having  a  distinct 
individuality,  must  evolve  its  own  system  of  supervision  suited  to 
its  special  needs. 

In  this  as  in  all  other  social  matters  in  a  democrac}',  it  is 
necessary  to  compromise  between  extremes  and  obtain  the  best 
possible  system  that  can  win  the  favor  of  a  majority.  Action  is 
almost  always  below  the  ideal.  Of  these  facts  the  Pennsylvania 
situation  in  regard  to  state  supervision  of  charities  is  an  apt  ex- 
ample. 

The  system  of  visitation  and  inspection  of  charities  by  the 
state  authorities  centers  in  the  board  of  public  charities.  This 
board  was  established  in  1869,  with  full  pov/er  "at  all  times  to  look 
into  and  examine  the  condition  of  all  charitable,  reformatory  or 
correctional  institutions  within  the  State." 

This  was  interpreted  in  the  attorney  general's  report  of  1890 
to  mean  that  its  power  "is  not  confined  to  institutions  receiving 
State  aid,  but  extends  to  all  charitable  institutions,  whether  ad- 
ministered by  corporations  or  not,  and  without  regard  to  the 
limitation  of  the  class  of  persons  received  or  relieved  thereby." 

*  National  Conference  of  Charities  and  Correction.  Proceedings,  igii.p.  12. 
259 


CHILD   WELFARE    WORK    IN    PENNSYLVANIA 

Under  the  act  creating  the  board,  all  charitable  and  correctional 
institutions  receiving  state  aid  were  to  be  inspected  annually.  All 
jails  and  almshouses  were  to  be  inspected  at  least  biennially.  But 
it  does  not  appear  that  private  charitable  institutions  not  receiving 
state  aid  were  to  be  visited  at  any  stated  times  or  with  any  regu- 
larity. The  records  of  almshouses  and  of  charitable  institutions 
receiving  state  aid  were  required  to  be  kept  in  form  as  prescribed 
by  the  board;  but  so  far  as  is  known,  there  was  and  is  no  authority 
to  require  adequate  records  of  other  charitable  institutions. 

In  a  later  chapter,*  sections  5  and  8  of  the  act  creating  the 
board  of  public  charities,  as  revised  by  the  legislature  in  191 3, 
are  quoted  in  full.  As  will  be  noted,  there  is  no  lack  of  general 
authority  for  supervision,  but  a  failure  in  these  and  other  sections 
to  define  certain  essential  things,  if  the  supervision  is  to  be  both 
general  and  efficient. 

1 .  There  is  no  definite  or  regular  supervision  provided  for 
private  charities  other  than  those  receiving  state  aid.  Scores  of 
orphanages  and  children's  homes  are  either  not  visited  at  all,  or 
only  when  it  is  convenient,  or  when  rumors  of  misconduct  are 
heard. 

2.  There  is  no  definite  restriction  on  the  founding,  organiz- 
ing, or  management  of  private  charities,  whether  of  agency  or  in- 
stitutional character.  Plans  of  county  prisons  or  almshouses 
must  be  submitted  to  and  approved  by  this  board;  but  there  is  no 
such  provision  relating  to  private  charitable  institutions. 

3.  There  is,  as  above  noted,  no  method  of  compelling  private 
charities  to  keep  adequate  and  satisfactory  records  of  their  work 
and  finance,  except  such  as  are  necessary  to  provide  material  for 
the  required  reports.  Their  books  and  records  must  be  open  to 
the  board's  visitor,  if  one  should  happen  to  appear,  but  the  board 
has  no  power  to  compel  changes  or  improvements. 

4.  There  is  no  method  of  licensing  or  of  giving  certificates  of 
approval  to  worthy  private  charities,  or  of  expressing  disapproval 
by  the  refusal  of  such  certificates.  The  public  is  left  to  its  own 
resources  in  its  effort  to  determine  whether  or  not  a  so-called  char- 
ity is  really  altruistic  and  worthy  of  support. 

*See  Chapter  XXX,  Some  Revised  and  Recent  Statutes,  pp.  288-290. 
260 


Main  Building 


On  the  Playground 
Bftuksda    CHiLUKfcN's   Chkisiian    HoMh,    Philadelphia.     (See    I'ahle   14,  p.   174) 


The  Tots'  Dormitory 


The   I  ots  at  Play 
Philadelphia  Home  for  Infants,  Philadelphia.     (See  Table  i6,  p.  190) 


STATE    SUPERVISION    OF    CHILDREN  S    INSTITUTIONS 

5.  The  direct  authority  of  the  board  in  rej^ard  to  private 
charities  seems  to  end  with  its  recommendation  of  certain  amounts 
to  be  given  in  subsidies  from  the  pubHc  treasury.  For  known  and 
manifest  derehction,  the  board  can  doubtless  appeal  to  the  courts, 
but  appears  to  have  no  special  initiative  other  than  to  file  com- 
plaints. As  another  has  plainly  put  it:  "The  board  of  public  char- 
ities has  merely  the  power  to  investigate  and  to  advise." 

6.  The  board  is  limited  in  its  supervisional  service  by  the 
lack  of  adequate  appropriations  for  the  employment  of  trained 
inspectors  and  visitors.  It  is  a  physical  impossibility  for  the  force 
now  employed  to  properly  cover  the  fields  included  in  the  sphere 
of  authorized  supervision.  Naturally  the  required  supervision  is 
done  after  a  fashion,  but  the  optional  part,  or  that  not  definitely 
to  be  done  within  stated  periods,  is  overlooked  or  neglected. 

These  and  other  faults  in  the  present  system  of  state  super- 
vision, and  which  indeed  are  common  to  many  of  the  states,  have 
led  the  more  advanced  social  workers  of  the  commonwealth  to 
seek  improvements.  Various  plans  have  been  drawn,  and  some 
were  presented  to  the  legislature  of  19 13,  but  without  action  by 
the  law-making  body.  New  efforts  are  to  be  made  to  secure 
general  and  adequate  supervision  of  charitable  agencies  and  in- 
stitutions, especially  those  under  private  management,  when  the 
legislature  again  assembles. 

The  California  system,  which  gives  the  main  part  of  the  work 
to  the  state  board  of  charities,  but  leaves  a  portion  to  the  state 
board  of  control,  has  been  epitomized  by  the  Honorable  W.  A. 
Gates  of  San  Francisco,  former  secretary  of  the  state  board  of  chari- 
ties. His  outline  should  perhaps  be  called  the  state  program  for 
the  care  of  dependent,  delinquent,  and  defective  children. 

1.  Complete  supervision  by  the  state  board  of  charities  of  all 
institutions  and  agencies  engaged  in  caring  for  or  handling  dependent 
children;  with  three  children's  agents  working  under  the  direction  of  the 
state  board  of  control. 

2.  The  preservation  of  family  ties  and  the  maintenance  of  the 
child  in  the  home  of  its  living  parents  or  relatives  unless  by  a  judgment 
of  court  they  are  declared  to  be  immoral,  cruel,  or  unfit. 

3.  Temporary  care  of  children  in  institutions  when  essential  to 

261 


CHILD   WELFARE    WORK    IN    PENNSYLVANIA 

tide  over  an  emergency  or  re-establish  a  broken  home;  with  state  aid 
given  on  a  per  capita  basis. 

4.  The  placing  in  approved  family  homes  of  all  children  whose 
natural  home  for  any  cause  has  failed  and  can  not  be  restored. 

5.  By  moral  and  legal  suasion  compelling  all  responsible  parents 
to  meet  their  parental  obligations. 

6.  Adequate  aid  for  all  dependent  children,  and  such  supervision 
as  will  secure  to  them  the  care,  education,  and  training  which  is  the 
natural  birthright  of  every  child. 

7.  A  license  or  certificate  of  approval,  renewable  annually,  to  be 
issued  after  due  examination  to  worthy  agencies  and  institutions  by  the 
state  board  of  charities. 

8.  Citizens  and  officials  to  wage  a  constant  campaign  to  lessen  the 
causes  which  produce  dependency  and  delinquency. 

These  items  do  not  all  directly  belong  to  state  supervision, 
but  are  intimately  related  to  it.  To  successfully  carry  out  the 
program  requires  the  constant  and  intelligent  aid  of  the  state 
supervisory  agency.  This  program  is  backed  by  definite  legisla- 
tion, either  in  recent  statutes  or  in  old  ones  recently  amended. 
The  ground  covered  in  regard  to  children  is  about  the  same  as  that 
now  held  by  the  Pennsylvania  Board  of  Public  Charities  plus  the 
six  features  noted  above  as  lacking  to  make  the  board's  supervision 
broadly  effective.  It  is  possible  that  a  reinforcement  of  the  scope 
and  powers  of  the  board  of  public  charities  would  meet  the  main 
exigencies  of  Pennsylvania's  child-caring  work  in  the  near  future. 
It  is  conceded  that  the  appointment  of  the  board  and  of  all  its 
employes  should  be  entirely  removed  from  the  domain  of  politics, 
and  merit  and  fitness,  rather  than  party  pull,  govern  all  selections 
for  service. 

In  Iowa  and  Wisconsin,  and  perhaps  in  other  states,  a  single 
department  called  a  state  board  of  control  has  the  management  of 
all  the  state  institutions  for  charity  and  correction,  and  in  addi- 
tion a  general  supervision  of  all  private  charitable  agencies  and 
institutions.  These  boards  have  field  agents  whose  duties  are  to 
visit  the  agencies  and  institutions  at  irregular  and  unexpected 
times,  take  note  of  their  equipment,  buildings,  and  methods  of 
work,  and  obtain  statistical  reports  of  finance  and  inmates  or  de- 
pendents handled.     So  far  as  can  be  ascertained  the  Pennsylvania 

262 


STATE    SUPERVISION    OF    CHILDREN  S    INSTITUTIONS 

social  workers  are  not  inclined  to  accept  this  plan  as  a  satisfactory 
one  for  the  state.  Without  entering  upon  the  question  of  man- 
agement of  state  institutions  by  such  a  board,  which  seems  to  be 
successful  in  the  states  named  and  may  be  desirable  elsewhere, 
the  fact  that  supervision  of  private  institutions  is  an  incidental 
matter,  a  side  issue,  to  a  board  whose  main  sphere  is  management, 
is  sufficient  in  the  minds  of  many  to  condemn  the  plan. 

Among  certain  Pennsylvania  social  workers  in  charities  re- 
lated to  children,  there  is  apparently  a  desire  for  a  state  department 
of  children's  charities.  This,  as  they  have  outlined  the  plan,  is 
intended  to  be  a  strong  central  agency,  reinforced  by  certain 
financial  reforms  and  statutory  requirements.  The  plan  may 
briefly  be  outlined  as  follows: 

1.  A  state  agency,  or  department,  perhaps  called  the  board  fo 
children's  guardians.  This  board  should  possess  large  and  well-defined 
powers  in  relation  to  all  public  and  private  agencies  and  institutions  for 
the  care  of  dependent,  delinquent,  and  defective  children.  It  should  be 
headed  by  an  able  commissioner  or  executive  secretary,  with  an  adequate 
force  of  trained  agents  at  command. 

2.  This  board  would  have  authority  to  receive  children  from  any 
part  of  the  state,  and  to  distribute  them  among  agencies  and  institu- 
tions, public  and  private,  or  to  place  such  as  are  suitable  directly  in 
private  family  homes;  and  would  have  direct  and  definite  supervision 
over  all  agencies  and  institutions,  public  or  private,  within  the  state, 
caring  for  dependent,  delinquent,  or  defective  children. 

3.  The  board  might  or  might  not  have  at  its  option,  and  subject 
to  the  appropriation  of  funds  by  the  legislature,  one  or  more  receiving 
homes  for  the  temporary  care  and  medical  and  psychological  study  of 
children,  pending  their  location  in  institutions  for  more  permanent  care, 
or  their  placement  in  approved  private  family  homes. 

4.  All  courts  and  poor  law  officials  would  be  required  to  place 
their  dependent,  delinquent,  or  defective  children  requiring  care,  tem- 
porary or  permanent,  either  with  the  agents  of  this  department  or  with 
agencies  and  institutions  it  had  approved. 

5.  All  agencies  and  institutions  desiring  to  care  for  children  of  any 
of  these  classes,  would  be  required  to  make  application  to  this  board, 
which  would  have  authority  to  issue  certificates  of  approval  annually  to 
such  as  met  its  requirements.  To  do  such  work  without  a  board  certi- 
ficate would  be  punishable  as  a  misdemeanor. 

6.  All  public  funds,  state,  county,  or  city,  intended  for  the  relief  of 

263 


CHILD   WELFARE    WORK    IN    PENNSYLVANIA 

needy  children  of  these  classes,  whether  they  are  in  the  care  of  the 
agencies  or  institutions,  would  be  distributed  strictly  upon  a  per  capita 
basis  for  actual  service  rendered. 

7.  The  actual  dependency  of  all  children  of  these  classes,  for 
whom  aid  was  asked  from  funds  produced  by  taxation,  would  be  offi- 
cially certified  by  a  proper  public  officer,  either  a  poor  law  official  or 
some  one  connected  with  the  courts;  and  public  funds  would  be  appro- 
priated only  to  such  as  were  so  listed. 

It  is  believed  by  many  that  such  a  separation  of  children's 
charities  from  the  other  charities  of  the  state,  and  the  creation  of  a 
children's  board  with  scope  and  authority  as  outlined,  and  statu- 
tory requirements  in  regard  to  public  finance  as  suggested,  would 
meet  present  needs  better  than  any  other  plan  so  far  proposed. 

Another  system  has  found  favor  in  other  quarters  and  may 
well  receive  mention  here.  It  proposes  a  state  department  for  all 
charities,  only  a  section  of  it  to  be  devoted  to  work  for  children. 
The  main  points  of  this  more  comprehensive  plan  are  as  follows: 

1.  The  creation  by  statute  of  a  department  of  charities,  its  execu- 
tive to  be  a  single  commissioner,  supported  by  an  expert  staff  of  paid 
deputies,  and  its  functions,  powers,  and  duties  to  be  clearly  and  fully 
defined. 

2.  An  advisory  board  to  aid  the  commissioner  in  the  establish- 
ment of  rules  and  regulations  for  the  management  and  supervision  of 
the  charities  of  the  state.  This  board  to  be  an  unpaid  body  of  volun- 
teer citizens,  who  will  represent  the  best  thought  of  informed  philan- 
thropic people. 

3.  The  department  would  have  an  office  force  and  inspection  staff 
of  trained  men  and  women,  divided  into  two  or  more  sections,  each  with 
its  chief  clerk  and  special  agents. 

4.  There  would  be  a  section  or  division  of  the  department,  with  a 
chief  clerk,  or  executive  secretary,  and  a  staff  of  trained  workers  to  su- 
pervise all  public  or  private  organizations  and  institutions  caring  for 
dependent,  delinquent,  or  defective  children. 

3.  Satisfactory  methods,  under  the  authority  of  new  statutes,  if 
necessary,  of  enforcing  the  orders,  rules,  and  recommendations  of  the 
department. 

6.  A  fiscal  bureau  to  effect  economies  and  establish  improved  and 
more  uniform  standards  of  business  administration  in  the  institutions. 

7.  Control  of  the  indiscriminate  multiplication  of  charities  by  re- 

264 


STATE    SUPERVISION    OF    CHILDREN  S    INSTITUTIONS 

quiring  the  department's  approval  of  all  charters,  and  the  annual  licens- 
ing of  all  organized  charities. 

8.  The  appropriation  of  public  funds  to  institutions  not  complying 
with  the  rules  of  the  department  to  be  forbidden. 

9.  Lobb\ing  to  be  forbidden  under  penalty,  and  the  department 
made  solely  responsible  for  the  recommendation  of  all  appropriations  to 
charitable  institutions  from  public  funds. 

10.  Provision  in  the  statute  creating  the  department  to  make  it 
absolutely  non  partisan  and  nonsectarian  in  its  personnel,  methods,  and 
action. 

Adequate  and  satisfactory  state  supervision  of  children's 
charities  can  be  accomplished  in  at  least  four  ways — by  enlarging 
and  strengthening  the  work  of  the  state  board  of  charities;  by  put- 
ting the  work  in  as  a  section  of  the  official  duties  of  a  state  board 
of  control;  by  a  board  of  children's  guardians,  separating  child- 
caring  work  from  other  charities;  and  by  a  general  department  of 
charities,  with  a  children's  section  properly  manned  and  equipped. 
From  these  different  plans  surely  the  combined  wisdom  of  Pennsyl- 
vania's social  forces  can  evolve  a  satisfactory  system  for  the  state. 
It  is  not  our  purpose  to  select  or  dictate,  but  simply  to  urge  that 
as  soon  as  possible  advanced  ground  be  taken  on  the  important 
matter  of  state  supervision. 


265 


CHAPTER   XXVI II 
CARE  AND  SEGREGATION  OF  THE  FEEBLE-MINDED 

DR.  MARTIN  W.  BARR,  chief  physician  of  the  Pennsyl- 
vania Training  School  for  Feeble-minded  Children, 
tersely  describes  this  class  in  these  words:  "The  victim, 
the  scourge,  and  the  inevitable  procreator  of  a  decadent  humanity, 
is  the  imbecile  of  whatever  grade."  * 

The  special  study  and  attention  now  being  given  to  the 
mentally  defective  and  backward  classes  is  one  of  the  natural  inci- 
dents of  the  present  remarkable  social  cycle.  While  no  extended 
review  of  causes  and  conditions  leading  to  imbecility  can  here  be 
attempted,  and  only  an  outline  of  existing  and  proposed  preventive 
and  remedial  agencies  is  within  the  space  limitations  of  this  chapter, 
the  importance  of  the  theme  and  its  intimate  relation  to  the  whole 
subject  of  adequate  provision  for  needy  and  neglected  children, 
require  a  somewhat  extended  presentation  of  the  matter. 

First,  to  be  briefly  considered,  are  the  causes  of/eeble-minded- 
ness.  Dr.  Barr,  above  quoted,  declares  that  of  4,050  cases  per- 
sonally investigated  he  found  65.4  per  cent  traceable  to  causes 
acting  before  birth,  4.6  to  those  acting  at  the  time  of  birth,  and  30 
per  cent  to  those  acting  after  the  time  of  birth. f  In  general  terms, 
two-thirds  of  all  imbecility  are  due  to  direct  inheritance  from  par- 
ents and  one-third  to  causes  connected  with  accident  and  disease. 

Dr.  Walter  S.  Cornell,  neurologist  to  the  Division  of  School 
Inspection  of  Philadelphia,  in  a  pamphlet  on  The  Feeble-Minded 
World,  says:  "Actually  95  per  cent  of  the  feeble-minded  are  born 
so  because  of  hereditary  influences  or  injury  to  the  head  during 
labor."!     If  we  subtract  5  per  cent  for  the  latter  cause,  which,  as 

*  Barr,  Martin  W.:  The  Feeble-minded  a  Sociological  Problem.  The 
Alienist  and  Neurologist,  Vol.  XXXIV,  No.  3,  August,  1913. 

t  Barr,  Martin  W.:  Some  Notes  on  Causation  of  Mental  Defect.  Read  at 
the  Thirty-fourth  Annual  Convention  of  the  Association  of  Directors  of  the  Poor 
and  Charities  of  Pennsylvania,  West  Chester,  October  13,  1908. 

t  Cornell,  Walter  S.:  The  Feeble-minded  World,  p.  i.  Department  of 
Public  Health  and  Charities.     Bulletin.     Philadelphia,  191 1. 

266 


CARE    AND    SEGREGATION    OF    THE    FEEBLE-MINDED 

seen  above,  exceeds  Dr.  Barr's  experimental  results,  we  have  an 
estimate  of  90  per  cent  for  prenatal  parental  causes.  Averaging 
the  estimates  of  Dr.  Barr  and  Dr.  Cornell,  we  have  at  least  80 
per  cent  of  imbecility  due  to  parental  defects  or  conditions;  and  the 
major  part  of  these  properly  and  practically  preventable. 

Alcoholism,  epilepsy,  neurotic  affections,  a  lowering  of  tone 
from  indulgence  in  petty  vices,  scrofula,  syphilis,  attempted 
abortion,  and  lack  of  normal  mentality,  are  the  most  prominent 
parental  defects  and  conditions  which  cause  imbecility  in  chil- 
dren. The  causes  operating  at  birth  to  produce  feeble-mindedness 
are  few.  About  40  per  cent  of  such  cases  are  due  to  instrumental 
delivery;  about  20  per  cent  to  premature  birth;  about  20  per  cent 
more  to  prolonged  and  difficult  labor,  and  the  rest  to  various 
accidents.  The  third  class  are  those  afflicted  sometime  after 
birth,  and  their  condition  is  ascribed  to  the  effects  of  accidents 
and  diseases.*  These  facts  and  proportionate  numbers  should  be 
generally  known,  and  constitute  the  strongest  possible  argument 
for  special  preventive  measures. 

Dr.  Cornell,  above  quoted,  says  also:  "We  need  laws  which 
recognize  feeble-mindedness  and  distinguish  the  condition  from 
that  of  insanity.  We  need  not  only  a  legal  definition  of  feeble- 
mindedness, but  definite  terms  for  the  three  principal  grades  of 
feeble-mindedness.  ...  At  the  present  time  such  ignorance 
exists  on  the  part  of  lawyers  and  even  physicians  that  the  'expert 
testimony'  given  in  lawsuits  involving  the  subject  is  usually  ab- 
surd. The  lack  of  standard  definitions  adopted  by  the  medical 
professions  and  the  State  adds  to  the  chaos  by  making  our  judges 
not  only  medically  ignorant,  but  helpless."  f 

The  need  of  accepted  definitions  and  of  a  clear  classifica- 
tion of  the  grades  of  mental  defectives  is  especially  felt  by  social 
workers.  Therefore,  it  seems  best  to  present  here  some  definitions 
and  a  classification,  drawn  from  the  declarations  of  experts  but 
purposely  brief  and  untechnical. 

In  Dr.  A.  F.  Tredgold's  recent  work  on  Mental  Deficiency 
is  this  definition  of  amentia  or  feeble-mindedness:  "  It  is  a  state  of 

*  Barr,  op.  cit.p.  3. 

t  Cornell,  Walter  S.:  Public  Provision  for  the  Feeble-minded,  p.  2.  De- 
partment of  Public  Health  and  Charities.     Bulletin.     Philadelphia,  1911. 

267 


CHILD   WELFARE    WORK    IN    PENNSYLVANIA 

mental  defect  from  birth,  or  from  an  early  age,  due  to  incomplete 
cerebral  development,  in  consequence  of  which  a  person  affected 
is  unable  to  perform  his  duties  as  a  member  of  society  in  the  posi- 
tion in  life  to  which  he  was  born."* 

Another  definition,  formulated  from  the  writings  of  Dr. 
Walter  S.  Cornell  of  Philadelphia,  has  the  advantage  of  terseness, 
brevity,  and  clearness. 

"  Feeble-mindedness  may  be  defined  as  original  lack  of  nor- 
mal mental  capacity."  Then,  to  explain  the  expression,  he  says: 
"  By  'original'  is  meant  before  the  end  of  the  child  period  or  about 
the  twelfth  year,  although  actually  95  per  cent  of.  the  feeble- 
minded are  born  so  because  of  hereditary  influences,  or  injury  to 
the  head  during  labor.  By  'normal  capacity'  is  meant  approxi- 
mately the  mental  capacity  of  an  1 1  or  12  year  old  person."  f 

The  feeble-minded  are  usually  classified  into  two  groups, 
the  degenerates  and  the  accidental  cases.  Dr.  Walter  S.  Cornell 
says:  "Probably  over  one-half  of  all  the  feeble-minded,  and  cer- 
tainly three-fourths  of  all  those  found  as  State  charges  in  our 
public  institutions,  are  degenerates.  They  represent  the  running 
down  of  the  human  stock,  and  the  poorly  formed  brain  is  paralleled 
by  numerous  defects  of  other  organs  of  the  body."| 

There  seems  to  be  no  general  rule  for  the  classification  of 
mental  defectives  according  to  the  variation  of  cases  from  normal 
conditions.  Yet  as  schools  for  the  feeble-minded  have  multiplied, 
and  their  experience  has  increased,  "individuals  of  similar  apti- 
tudes have  been  massed,  separating  the  trainable  from  the  un- 
trainable,  until  a  clear-cut  grouping  according  to  ability  and  with 
corresponding  occupation  has  been  formed." 

Taking  the  classification  used  by  the  English  Parliamentary 
Commission  in  1908  as  a  basis,  and  using  the  systems  of  Dr.  Barr 
of  Elwyn,  Dr.  Cornell  of  Philadelphia,  and  of  Dr.  Goddard  of 
Vineland,  New  Jersey,  to  some  extent,  the  following  scheme  is 
suggested  as  comprehensible  to  the  layman  and  probably  unob- 
jectionable to  the  expert:  § 

*  Report  of  the  Commission  on  Segregation,  Care  and  Treatment  of  Feeble- 
minded and  Epileptic  Persons  in  Pennsylvania,  19 13,  p.  34. 

t  Cornell,  Walter  S.:    The  Feeble-minded  World,  op.  cit.,  p.  i. 

J  Ibid.,  p.  2. 

§  Report  of  the  Commission,  op.  cit.,  p.  36,  gives  a  similar  scheme,  but  less 
in  detail. 

268 


CARE    AND    SEGREGATION    OF   THE    FEEBLE-MINDED 

1.  Idiots.  Those  of  the  lowest  class  of  mental  defectives  are 
termed  idiots.  These  require  asylum  care,  are  very  slightly  im- 
provable, and  none  ever  exceed  the  mental  capacity  of  the  aver- 
age child  of  about  two  years. 

2.  Idio-lmbeciles.  Those  of  the  next  grade  are  called  idio- 
imbeciles.  They  also  require  asylum  care,  are  more  improvable, 
in  a  limited  way  can  be  trained  to  assist  others,  and  in  mental 
capacity  are  equal  to  the  average  child  of  from  three  to  five  years. 

3.  Imbeciles.  Those  of  the  third  grade  are  generally  called 
imbeciles.  They  require  custodial  life  and  perpetual  guardianship, 
are  morall)'  deficient,  can  be  trained  in  some  manual  and  industrial 
occupations,  are  often  plotters  of  mischief  with  a  genius  for  evil, 
and  in  mental  capacity  are  equal  to  the  average  child  of  from  six 
to  nine  years. 

4.  Morons.  Those  of  the  highest  class  of  the  constitutionally 
mentally  defective  recently  have  been  called  morons.  They  require 
long  apprenticeship  and  colony  life  under  protection,  are  trainable  in 
the  manual  arts  and  many  mental  acquirements,  lack  mainly  in 
will,  balance,  and  judgment,  and  in  mental  capacity  grade  with 
the  average  child  from  ten  to  twelve  years  old. 

5.  Dullards.  Another  class,  not  distinctly  defined,  is  that  of 
the  backward  or  mentally  feeble.  These  are  sometimes  wrongfully 
included  with  the  morons,  from  whom  it  is  often  difficult  to  distin- 
guish them.  But  morons  are  constitutionally  defective  and  can  never 
become  normal  in  mentality.  Dullards,  however,  are  normal  in  their 
mental  powers  and  processes,  which  have  been  enfeebled  by  disease 
or  retarded  by  lack  of  opportunity.  They  require  special  training  to 
develop  their  latent  powers,  and  usually  medical  attention,  scien- 
tific diet,  and  improved  environment.  The  special  schools  for  the 
backward  in  the  principal  cities  are  established  partly  to  meet 
their  needs,  and  partly  to  define  and  give  adequate  attention  to 
the  morons.* 

It  will  be  seen  that  experts  in  the  treatment  of  the  feeble- 
minded require  asylums  and  custodial  care  for  all  classes  except 
the  backward  children.     It  is  probable  that  most  of  those  in  the 

*See  classification  in  Barr,  Martin  W.:  The  Feeble-minded  a  Sociological 
Problem,  op.  cit.,  p.  6,  to  which  our  classification  closely  conforms. 

269 


CHILD   WELFARE    WORK    IN    PENNSYLVANIA 

dullard  class  v/ould  be  benefited  by  care  and  training  for  months, 
perhaps  even  years,  in  special  institutions.  In  many  cases  de- 
fective home  life  is  the  main  cause  of  the  backwardness.  But  the 
problems  of  adequate  provision  for  the  constitutionally  deficient 
are  so  great,  and  their  need  so  pressing,  that  it  is  scarcely  worth 
while  now  to  plan  for  more  than  a  legitimate  extension  of  schools 
for  the  backward  to  other  communities. 

Defectives  of  the  moron  type  are  often  capable  of  earning  a 
living  under  favorable  circumstances,  especially  after  definite 
training.  But  owing  to  their  mental  defects,  they  are  not  able 
to  compete  on  equal  terms  with  normal  associates,  nor  can  they 
manage  wages  or  property  with  ordinary  prudence.  A  few  exhibit 
a  one-sided  development,  showing  great  ability  in  some  special 
field,  or  aptitude  for  acquiring  certain  accomplishments.  The 
delinquent  feeble-minded  mostly  come  from  this  group,  which  is 
described  as  not  so  much  immoral  or  criminal  as  unmoral — incap- 
able of  appreciating  moral  distinctions.  The  feeble-minded  girl 
of  child-bearing  age,  to  whom  so  much  attention  is  now  being 
directed  by  social  workers,  is  often  of  the  moron  class.  In  all  of 
them  mental  development  is  arrested,  the  childlike  type  of  mind 
continues  through  life,  and  custodial  care,  or  at  least  careful 
guardianship,  is  a  necessity  for  both  their  own  welfare  and  the 
safety  of  society. 

The  Pennsylvania  situation  in  regard  to  the  care  and  seg- 
regation of  the  feeble-minded  has  many  interesting  features.  To 
some  of  these  let  us  now  address  ourselves. 

In  191 1,  in  response  to  a  joint  resolution  of  the  legislature, 
Governor  John  K.  Tener  appointed  a  commission  consisting  of  the 
state  commissioner  of  health,  the  director  of  health  and  charities 
of  Philadelphia,  and  the  members  of  the  lunacy  commission  of  the 
board  of  public  charities,  to  "take  into  consideration  the  number 
and  status  of  the  feeble-minded  and  epileptic  persons  in  the  com- 
monwealth, and  the  increase  of  such  persons,  and  to  report  to  the 
General  Assembly  at  its  next  session  a  plan  or  plans  for  the  segre- 
gation, care  and  treatment  of  such  defectives."  * 

The  report  of  this  commission  as  made  to  the  legislature  in 
1913  presents  many  carefully  collected  facts  and  some  suggestive 

*Report  of  the  Commission,  op.  cit.,  p.  4. 
270 


CARE    AND    SEGREGATION    OF    THE    FEEBLE-MINDED 

conclusions.  The  commission  first  defined  the  term  "  feeble- 
minded'" b\-  declaring  amentia  or  feeble-mindedness  "every  form 
of  mental  defect  except  insanity,"*  and  upon  this  basis  made  its 
study  of  the  Pennsylvania  situation. 

From  various  statistics  covering  pages  9  to  23  of  the  report 
of  the  commission,  the  following  table  is  made  up,  showing  the 
numbers  of  the  feeble-minded  in  Pensylvania  now  receiving  in- 
stitutional care. 


TABLE    N. — FEEBLE-MINDED    PERSONS    IN     PENNSYLVANIA 
INSTITUTIONS,     I913 


Capacity 

Idiotic 
inmates 

Feeble-minded  inmates 

Institution 

Under 

Over 

Total 

16  years 

16  years 

Appropriate  institutions 

Polk 

1,500 

211 

304 

853 

1.368 

Spring  City 

SCO 

284 

51 

VI 

Elwyn 

1 ,  1 00 

57 

■77 

594 

828 

Total 

3.100 

268 

765 

1,498 

2,531 

Other  institutions 

Almshouses 

56 

II 

640 

707 

County  care  hospitals 

74 

18 

624 

716 

Glen  .Mills  Schools 

67 

63 

130 

House  of  the  Good 

Shep- 

herd 

I 

3« 

32 

Jails  and  prisons 

42 

42 

State  Hospitals  for  I 

nsane 

58 

17 

1,071 

1,146 

Western    Pennsylvania    In- 

stitute    for     Deaf 

and 

Dumb 

9 

I 

ID 

Total 

188 

123 

2,472 

2.783 

Grand  total 

456 

888 

3.970 

5.314 

Therefore,  at  the  time  of  the  study  by  the  commission  there 
were  a  total  of  5,314  idiots  and  other  feeble-minded  persons  in 
*Report  of  the  Commission,  op.  cit.,  p.  37. 
19  271 


CHILD    WELFARE    WORK    IN    PENNSYLVANIA 

Pennsylvania  receiving  institutional  care,  less  than  50  per  cent  of 
whom  were  in  appropriate  institutions. 

It  is  perhaps  needless  to  say  that  no  one  approves  of  the  care 
of  the  feeble-minded  in  institutions  for  the  delinquent,  or  even  in 
the  almshouses  or  ordinary  hospitals.  They  are  essentially  chil- 
dren who  can  never  come  to  mental  maturity;  they  are  not  blame- 
worthy, but  objects  of  pity  and  sympathy;  therefore  they  should 
have  care  and  training  of  kinds  adapted  to  their  condition  and  their 
several  needs. 

The  commission  also  secured  data  as  to  the  numbers  of  epi- 
leptics in  the  state.  It  found  75  in  the  Epileptic  Hospital  at  Oak- 
bourne;  68  in  the  Passavant  Memorial  Home  at  Rochester;  222 
in  the  institution  at  Polk;  1 13  at  Spring  City;  246  at  Elwyn;  661 
in  the  State  Hospital  for  the  Insane;  482  in  the  county  care  hos- 
pitals; and  145  in  other  institutions.  In  all  a  total  of  2,012  epilep- 
tics were  receiving  institutional  care;  but  as  many  of  them  are  also 
feeble-minded,  and  already  had  been  included  in  the  statistics  for 
that  class,  all  of  this  number  can  not  be  added  to  the  5,314 
defectives  previously  noted. 

In  round  numbers  this  commission  reports  about  7,000 
feeble-minded  and  epileptic  persons  now  receiving  institutional 
care,  only  about  3,000  of  whom  are  in  appropriate  institutions. 

The  commission  also  found  on  the  waiting  lists  of  the  three 
principal  institutions,  at  Polk,  Spring  City,  and  Elwyn,  a  total  of 
approximately  1,000  who  could  not  now  be  received  for  lack  of 
room.  Efforts  were  made  to  ascertain  the  numbers  and  locations 
of  other  unfortunates  of  these  classes  by  correspondence  with 
school  superintendents  and  county  medical  societies;  but  such  in- 
quiry was  barren  of  results. 

Turning  now  to  general  estimates,  based  upon  studies  in 
Pennsylvania  and  in  other  states  and  countries,  the  commission 
embodied  in  its  report  on  defectives  three  suggestions  as  to  num- 
bers. 

In  the  city  of  Philadelphia  there  were  in  191 2  a  total  of 
187,405  children  of  school  age.  Of  these,  1,600  were  in  the  special 
classes  for  backward  children.  These  classes  include  the  truant 
and  the  incorrigible  as  well  as  the  backward,  but  all  are  regarded 
as  being  mentally  defective  in  a  greater  or  less  degree.     Now,  if 

272 


CARE    AND    SEGREGATION    OF    THE    FEEBLE-MINDED 

the  same  ratio  were  carried  out  we  would  have  out  of  the  1,448,- 
000  school  children  of  the  state,  an  aggregate  of  12,363  who  should 
be  in  special  schools  or  classes  for  the  backward. 

Another  line  of  investigation  gave  to  the  commission  con- 
siderable evidence  that  among  children  between  six  and  sixteen 
years  in  the  state,  an  average  of  2  per  cent  vv'ere  feeble-minded. 
If  so,  of  the  1,448,000  school  children,  no  less  than  28,960  are  more 
or  less  mentally  deficient. 

The  morons  are  in  some  respects  the  most  difficult  and  the 
most  dangerous,  as  well  as  the  most  important  class  of  mental 
defectives.  In  regard  to  them  the  commission  says:  "The  exact 
number  of  the  higher  class  of  the  moron  type  can  not  be  computed, 
it  may  be  that  there  are  18,000  at  large  in  Pennsylvania,  or  there 
may  be  15,000,  or  only  10,000;  but  the  number  is  probably  much 
greater  than  those  who  are  now  reported  as  receiving  institutional 
care.  .  .  .  If  all  backward  children,  psychopathic  personal- 
ities, cranks,  and  degenerates  are  to  be  included  in  the  group  of 
feeble-minded,  the  aggregates  in  Pennsylvania  may  be  larger  than 
the  highest  estimate  mentioned."  * 

There  is  an  inclination  throughout  the  country  to  accept  one 
in  every  300  as  about  the  ratio  of  feeble-minded  persons  to  the 
general  population.  The  census  of  1910  gave  to  Pennsylvania  a 
population  of  7,665,1 11.  On  this  basis  there  are  within  the  state 
about  25,550  feeble-minded  persons  of  all  ages  and  classes.  Of 
these  it  is  conservative  to  estimate  that  four-fifths,  or  in  round 
numbers  20,000,  should  have  custodial  care,  and  the  higher  classes 
of  them  special  training. 

The  special  provision  for  these  in  appropriate  institutions 
is  in  round  numbers  3,100.  There  is  to  be  an  enlargement  of  the 
institution  at  Spring  City  of  perhaps  300  to  500  within  the  next 
few  years.  The  city  of  Philadelphia  is  building  an  institution  for 
imbeciles  and  morons  at  Byberry,  and  the  capacity  will  be  500. 
The  legislature  of  1913  established  the  Village  for  Feeble-Minded 
Women;  but  as  only  $40,000  were  appropriated  for  preliminary 
work,  and  funds  for  the  erection  of  cottages  must  be  appropriated 
by  the  next  legislature,  the  possible  capacity  is  too  remote  to  be 
added.     Proposed  additions  at  Elwyn  should  not  be  counted  until 

*Report  of  the  Commission,  op.  cit.,  pp.  40-42. 
273 


CHILD   WELFARE    WORK    IN    PENNSYLVANIA 

erected.  Thus  there  is  now,  or  will  be  within  a  year  or  two,  defi- 
nite and  appropriate  provision  for  4,000  of  the  feeble-minded, 
when  there  are  20,000  who  should  have  custodial  care. 

All  social  workers  will  heartily  agree  with  a  quotation  ap- 
provingly made  by  the  commission  from  Thomas  Holmes,  secre- 
tary of  the  Howard  Association: 

"  Provision  should  be  made  by  competent  authority  for  all 
of  the  feeble-minded,  and  especially  for  the  women  of  child- 
bearing  age  who  are  mentally  defective.  As  there  does  not  seem 
to  be  any  other  constituted  authority  of  sufficient  power  and  means 
to  undertake  this  work,  it  is  clearly  a  function  which  can  be  and 
should  be  assumed  by  the  State."  * 

What  will  it  cost?  An  immense  sum  in  the  aggregate;  but 
it  is  a  work  of  tremendous  importance,  both  to  the  present  and 
future  generations.  As  was  shown,  there  is  immediate  provision 
for  only  4,000  of  the  feeble-minded  and  20,000  need  institutional 
care.  Divide  the  estimate,  to  be  on  the  safe  side,  and  say  that 
there  are  10,000  persons  requiring  it.  Drop  another  2,000  to  be 
absolutely  within  conservative  limits;  and  duty  to  society  and  to 
these  unfortunates  calls  for  new  institutions  with  at  least  4,000 
more  beds  for  the  feeble-minded.  The  cost  of  plants  per  bed  is 
estimated  at  about  Si, 000,  so  to  provide  for  4,000  more  will  require 
about  $4,000,000.  If  Pennsylvania  would  put,  free  from  graft,  a 
million  a  year  for  the  next  five  years  into  institutions  for  the  feeble- 
minded, it  would  be  an  investment  to  return  high  interest  in  the 
welfare  of  the  people. 

As  a  partial  state  program  on  this  important  matter,  the 
following  items  are  suggested: 

1.  Enlarge  and  extend  the  system  of  medical  inspection  in 
schools  and  the  registration  of  imbeciles. 

2.  Increase  the  number  and  enlarge  the  capacity  of  classes 
and  schools  for  morons  and  backward  children. 

3.  Give  closer  and  more  systematic  supervision  to  factories, 
stores,  and  lodging  houses,  in  the  special  interest  of  the  endangered 
girl  who  may  be  mentally  on  the  borderline  of  defectiveness. 

4.  Seek  the  coordination  of  all  charity  organizations,  espe- 

*Report  of  the  Commission,  op.  cit.,  p.  45. 
274 


CARE    AND    SEGREGATION    OF    THE    FEEBLE-MINDED 

cially  those  caring  for  children,  so  as  to  form  a  state-wide  agency  to 
detect  feeble-mindedness  and  protect  all  such  unfortunates. 

5.  Carefully  study  the  statutes  and  experiences  of  other 
states  in  regard  to  the  sterilization  or  asexualization  of  certain 
classes  before  taking  action. 

6.  In  modernizing  existing  institutions  or  erecting  new  ones, 
the  old  congregate  types  should  be  decried,  and  the  cottage  and 
group  type  advocated. 

7.  Earnest  and  systematic  efforts  should  be  continued  to  ob- 
tain adequate  and  appropriate  institutional  provision  for  all 
classes  of  the  feeble-minded.  The  urgency  of  the  need  for  the  seg- 
regation of  the  feeble-minded  women  of  child-bearing  age,  of 
whom  there  are  probably  7,000  in  the  state,  should  be  made  prom- 
inent, even  though  an  institution  has  been  ordered  and  probably 
will  materialize  within  the  next  five  years. 


275 


CHAPTER  XXIX 
LAW  OF  1913  FOR  MOTHERS'  ASSISTANCE 

IN  the  chapter  on  Revised  and  Recent  Statutes  will  be  found  the 
essential  features  of  the  new  law  on  Mothers'  Assistance, 
commonly  called  Mothers'  Pensions.  Several  things  have  con- 
spired to  delay  its  active  operation.  Although  signed  by  the 
governor  in  April,  191 3,  it  could  only  become  effective  in  counties 
by  favorable  county  action,  for  participation  in  state  appropriations 
was  dependent  upon  the  agreement  of  the  county  to  provide  an 
amount  equal  to  the  state  aid  given  for  the  assistance  or  pension 
funds.  After  such  agreement,  it  was  necessary  to  select  and  secure 
the  governor's  appointment  of  the  five  or  seven  women  to  act  as 
trustees,  provide  a  county  headquarters,  and  appoint  an  investiga- 
tor and  perhaps  other  workers.  There  also  has  been  more  or 
less  of  local  opposition  to  the  new  law  on  various  grounds. 

One  leading  social  worker  of  Philadelphia  has  put  his  objec- 
tions to  the  law  into  such  concrete  form  that  an  outline  of  them 
may  well  be  given,  for  later  reference,  when  the  operation  of  the 
statute  has  proved  or  disproved  their  wisdom. 

1.  The  popular  agitation  for  the  bill,  under  the  name  of  "Mothers' 
Pensions,"  has  been  misleading  and  will  eventually  result  in  great 
harm.  It  is  a  misuse  of  the  word  "pension"  and  is  particularly  unsound 
when  it  creates  the  idea  that  mothers  should  be  compensated  for  the  rear- 
ing of  their  children. 

2.  The  act  itself  is  poorly  drawn.  Men  who  were  endeavoring  to 
catch  popular  favor  for  political  purposes  imitated  the  legislation  of  other 
states  without  having  adequate  knowledge  of  the  problem  with  which  they 
were  attempting  to  deal. 

3.  A  definite  and  serious  fault  is  its  lack  of  provision  for  the  super- 
vision and  guidance  of  mothers  receiving  the  assistance. 

4.  The  provision  for  administrative  expense  is  absurdly  low  for  the 
large  cities.  In  Philadelphia  County  there  will  probably  be  at  least  1,500 
applications  a  year,  and  for  equipment  and  administrative  purposes  the 

276 


LAW    OF    1913    FOR    MOTHERS     ASSISTANCE 

law  allows  only  $3,500.     To  do  the  necessary  work  on  that  sum  is  im- 
possible. 

5.  The  amount  of  money  allotted  for  administrative  purposes  being 
so  small,  the  board  of  trustees  will  be  unable  to  secure  that  expert  trained 
service  without  which  the  public  funds  can  not  be  efficiently  administered. 
Poor  administration  and  unfair  investigation  will  inevitably  result  in  a 
short  time  in  great  popular  disapproval. 

Some  of  the  problems  under  consideration  are  well  shown 
by  the  following  extract  from  a  letter  written  by  Virginia  M.  P. 
McCouch,  chairman  of  the  trustees  of  the  Mothers'  Assistance 
Fund  of  Philadelphia  County. 

As  you  will  see,  the  Bill  gives  to  the  Trustees  great  powers  of  dis- 
cretion; and  one  of  the  greatest  problems  before  us  is  that  of  the  deserted 
wife  and  mother.  What  period  should  elapse  before  aid  should  begin? 
And  what  efforts  should  be  made  to  locate  the  recalcitrant  husband?  We 
hope  to  co-operate  with  the  newly  established  municipal  court,  but  our 
work  and  plans  are  still  tentative.  The  attitude  of  the  Trustees  towards 
the  Bill  is  expressed  by  a  question  mark.  We  hope  for  good  results,  but 
know  nothing  as  yet. 

This  letter  was  written  in  March,  19 14.  If  the  attitude  of 
the  trustees  themselves  was  then  expressed  by  a  question  mark, 
and  social  workers  were  making  statements  like  the  one  quoted 
above,  it  will  be  best  to  add  no  special  comments  or  suggestions 
of  our  own.  As  one  correspondent  puts  the  matter:  "The  Act 
is  now  a  law  of  the  commonwealth.  We  wish  to  see  the  experi- 
ment tried  under  the  most  favorable  auspices.  While  we  do  not 
believe  the  law  is  a  good  one,  we  do  hope  that  its  administration 
may  be  satisfactory. " 

At  the  close  of  19 14  there  were  14  counties  organized  under 
the  law.  Thirteen  of  these  were  named  by  the  Honorable  A.  W. 
Powell,  auditor  general  of  the  state,  in  a  letter  dated  December 
23,  1 9 14;  and  later  information  stated  that  Blair  County  had 
newly  organized.  The  counties  organized  are  Adams,  .Allegheny, 
Beaver,  Blair,  Clearfield,  Clinton,  Columbia,  Fayette,  Luzerne, 
McKean,  Philadelphia,  Potter,  Schuylkill,  and  Westmoreland. 
More  than  a  year  and  a  half  after  the  enactment  of  the  law  53 
counties  were  still  unorganized.  Of  the  organized  14,  a  part  had 
but  recently  taken  advantage  of  the  law;  others  had  but  a  few 

277 


CHILD    WELFARE    WORK    IN    PENNSYLVANIA 

months  of  experience  under  its  provisions,  and  real  reports  were 
available  from  only  two— Allegheny  and  Philadelphia  counties. 

From  the  report  of  the  trustees  of  the  Mothers'  Assistance 
Fund  of  Allegheny  County  for  the  year  1914,  the  following  inter- 
esting extracts  are  taken: 

The  applications  have  indeed  been  numerous.  The  impression 
that  any  widowed  mother  was  eligible  for  a  "pension,"  regardless  of  any 
real  need  of  public  assistance,  was  a  general  belief  of  the  public,  and  hun- 
dreds of  applications  were  received  in  the  first  few  days.  The  total  num- 
ber of  applications  to  date  is  1,663. 

A  ruling  to  only  consider  the  families  of  aliens  when  the  father  had 
become  a  citizen,  or  had  declared  his  intention  of  so  doing,  met  with  popu- 
lar approval.  Another  ruling  was  to  consider  only  widowed  mothers  for 
treatment,  and  to  refer  others,  if  necessary,  to  logical  agencies.  There  is  a 
difference  of  opinion  as  to  whether  indigent  mothers,  other  than  those  wid- 
owed or  abandoned,  were  to  be  included  in  the  law. 

The  number  of  families  actually  aided  during  the  year  is  105,  repre- 
senting 409  children.  The  funds  appropriated  by  the  county  and  state 
have  been  inadequate,  especially  the  amount  allowed  for  administrative 
purposes  ($2,400).  A  larger  sum  is  asked  for  administration  and  inves- 
tigation during  the  coming  year. 

From  the  report  of  the  trustees  of  the  Mothers'  Assistance 
Fund  of  Philadelphia  County  for  the  year  1914,  a  number  of 
interesting  paragraphs  are  extracted.  The  report,  which  is  here 
somewhat  abbreviated,  includes  a  description  and  defense  of  the 
plan,  and  various  recommendations  for  the  improvement  of  the 
system. 

The  legislature  of  Pennsylvania  in  the  Act  of  April  29,  191 3,  recog- 
nized for  the  first  time  as  a  distinct  group  to  be  the  subject  of  social  legis- 
lation, mothers  requiring  aid  in  the  task  of  supporting  families  of  young 
children.  It  had  previously  recognized  "dependent,  delinquent,  incorri- 
gible, and  neglected  children,"  regarded  as  individuals,  by  establishing  the 
juvenile  court,  March  21,  1901. 

The  Mothers'  Assistance  Act  has  been  in  operation  in  this  county 
only  since  February,  1914,  and  is  in  an  experimental  stage.  There  have 
been  many  applications  from  women  ineligible  under  the  terms  of  the  law. 
But  the  appropriation  has  already  proven  too  small  to  provide  for  large 
numbers  who  are  eligible. 

The  system  of  Mothers'  Assistance  rests  upon  the  theory  that  a 
278 


LAW    OF    1013    FOR    MOTHERS     ASSISTANCE 

competent  child  trainer  is  of  greater  value  to  the  state  than  a  woman  wage 
earner  handicapped  by  the  care  of  young  children;  and  provides  a  state- 
wide system  to  prevent  the  disruption  or  deterioration  of  widows'  families 
because  of  poverty.  One  year's  experience  seems  to  show  decided  social 
and  educational  advantages. 

The  state  has  established  a  certain  standard  of  child  welfare  by 
laws  compelling  school  attendance  and  regulating  child  labor.  The 
poverty  stricken  widowed  mother  feels  only  the  burden  and  not  the  ad- 
vantages of  these  laws.  The  same  woman,  assured  of  adequate  assist- 
ance, has  no  reason  to  evade  the  laws  made  for  the  benefit  of  her  children; 
and  by  this  assistance  is  helped  to  better  citizenship. 

The  requirement  of  monthly  reports  from  the  County  Boards  of 
Trustees  to  the  Auditor  General,  implies  a  supervision  which  is  of  great 
advantage  to  the  families.  A  qualified  agent  visiting  an  assisted  family 
every  month,  acts  as  an  interpreter  of  and  guide  to  the  resources  of  the 
city  in  regard  to  health,  recreation,  education,  employment,  etc.,  and 
thus  aids  in  the  development  of  the  family  life. 

The  aim  of  the  trustees  is  to  enable  the  mothers  to  give  their  chil- 
dren proper  care.  They  are  convinced  that  investigation  and  super- 
vision can  not  be  too  thorough;  otherwise  instead  of  helping  the  worthy 
mother  to  bring  up  useful  citizens,  a  class  of  paupers  is  created.  The 
family  is  under  supervision  not  because  of  delinquency,  but  in  order 
to  learn  better  methods  by  gradually  raising  standards  of  skill  in 
house  management  and  the  training  of  children.  The  mother  who  has 
lost  her  wage  earner  and  partner  in  the  rearing  of  the  family  is  to  receive 
from  the  state,  in  the  place  of  the  father,  aid  in  money  and  aid  in  wise 
administration  of  that  money  for  the  children's  support.  In  many  cases 
this  plan  offers  but  a  lame  substitute  for  the  father  who  has  been  taken 
from  the  family  group;  in  some  cases  the  situation  of  the  mother  and  the 
hope  for  the  future  of  the  children  are  much  better  than  they  were  under 
the  care  of  the  natural  breadwinner. 

The  mother  has  a  dignified  status  among  other  citizens  and  is  saved 
the  humiliation  of  being  classed  with  delinquents  and  paupers.  She  is 
secure  from  the  danger  that  poverty  will  become  pauperism,  and  is  not 
subjected  to  the  annoyance  and  hardships  of  court  processes  simply  be- 
cause she  is  a  widow  in  need  of  money  for  her  children's  upkeep. 

Some  persons  hold  that,  except  to  special  classes,  such  as  the  in- 
sane or  epileptic,  all  relief  to  the  indigent  should  come  from  private  sources 
rather  than  from  public  funds;  and  that  the  Mothers'  Assistance  Fund  is 
wrong  as  a  public  policy  because  it  encourages  a  new  class  of  dependents. 
But  this  system  may  well  be  considered  as  primarily  a  part  of  the  educa- 

279 


CHILD   WELFARE    WORK    IN    PENNSYLVANIA 

tional  policy  of  the  state,  in  that  its  aim  is  to  find  a  method  for  the  training 
of  citizens  when  the  normal  family  group  is  broken  by  the  loss  of  a  father. 

The  disadvantages  of  the  present  law  relate  to  details,  such  as  the 
definition  of  eligible  applicants,  rules  and  methods  of  standardization, 
and  some  points  of  administration;  and  do  not  inhere  in  the  principle  of 
state  assistance  to  widowed  mothers  during  the  school  years  of  their  chil- 
dren. The  money  given  is  not  an  alms,  in  the  usual  sense  of  this  word, 
but  the  best  and  most  economical  investment  the  state  can  make  to  secure 
satisfactory  returns  in  citizenship  under  the  conditions  present  in  the 
family  so  aided. 

The  Philadelphia  Trustees  feel  that  criticisms  in  regard  to  delays 
in  investigating  applications  are  not  warranted  under  present  circum- 
stances. More  rapid  work  is  physically  impossible  with  the  small  force 
now  available.  The  allowance  of  ^3,000  a  year  for  office  expenses  and 
salaries  permits  the  regular  employment  of  only  two  paid  workers.  But 
for  much  personal  work  by  the  Trustees  themselves,  and  the  aid  of  some 
15  volunteer  investigators,  the  work  would  have  been  even  more  retarded. 
As  it  now  stands  nearly  800  applications  await  investigation,  clearly  re- 
quiring additional  appropriations  for  administrative  purposes. 

The  Mothers'  Assistance  Fund  Trustees  in  Philadelphia  County 
feel  that  the  system  would  be  improved  by  the  following  changes  and 
additions: 

1.  A  controlling  and  standardizing  body  is  needed,  acting  for  the 
state,  to  interpret  the  law  and  establish  uniform  rules  of  procedure 
state-wide  in  their  application.  They  believe  that  this  can  be  accom- 
plished through  the  State  Department  of  Education,  and  suggest 
adding  to  the  duties  of  the  Department  the  task  of,  (a)  formulat- 
ing rules  for  the  guidance  of  county  boards  of  trustees;  (b)  receiving 
reports  from  trustees  on  the  social  and  educational  conditions  in  as- 
sisted families;  (c)  supervising,  through  the  staff  of  the  State  Com- 
missioner of  Education,  the  carrying  out  of  the  rules  in  the  various 
counties  taking  advantage  of  the  law. 

2.  The  above  plan  for  supervision  would  require  that  the  copy 
of  the  record  of  the  family  be  forwarded  to  the  State  Commissioner 
of  Education,  instead  of  filing  it  with  the  Juvenile  or  Orphans' 
Courts. 

3.  The  law  should  include  as  persons  to  be  reached,  (a)  women 
whose  husbands  are  dead  or  confined  in  hospitals  for  the  insane; 
(b)  children  under  fourteen  years  of  age;  (c)  children  between  four- 
teen and  sixteen  years  of  age,  if  such  are  unable  to  earn  wages,  or  are 
at  school  with  satisfactory  record  of  attendance  and  scholarship. 

280 


LAW    OH    1913    FOR    MOTHERS     ASSISTANCE 

Women  whoso  husbands  have  deserted  should  not  be  included,  for 
the  reason  that  the  solution  of  the  problem  of  the  deserting  husband 
lies  not  in  the  state's  supporting  the  abandoned  family,  but  in  its  de- 
veloping effective  machinery  to  bring  the  man  back  to  his  responsi- 
bility. 

4.  To  insure  stability  in  the  work  of  county  boards,  the  governor 
should  appoint  the  trustees  for  terms  expiring  at  different  dates,  as 
three  to  serve  for  one  year,  and  two  or  four  to  serve  for  two  or  four 
years.  After  that  the  appointments  to  be  made  annually  as  the 
terms  expire. 

5.  The  administration  fund  in  each  county  should  be  increased 
but  not  so  as  to  exceed  10  per  cent  of  the  entire  apportionment  in 
such  counties. 

6.  The  maximum  sum  available  in  Philadelphia  county  under  the 
appropriation  of  191 3,  for  two  years,  from  both  sources,  state  and 
county,  was  $81,334,  including  $6,500  for  equipment  and  adminis- 
tration. This  amount  is  now  (January  20, 191 5)  providing  assistance 
for  131  mothers.  Probably  the  number  of  families  in  this  county 
which  should  be  so  aided  will  approximate  500.  To  provide  for 
grants  and  supervision  for  such  a  number  would  call  for  an  appor- 
tionment of  four  times  as  much  money  as  at  present,  or  $326,000 
to  Philadelphia  county  for  the  next  biennial  period." 

Although  it  has  been  suggested  that  juvenile  court  judges 
be  authorized  to  make  orders  directly  upon  these  funds,  the  trus- 
tees apparently  feel  that  because  the  work  is  experimental,  and  its 
future  depends  on  unity  of  administration,  they  can  not  work  out 
an  adequate  or  safe  method  of  assistance  unless  this  kind  of  state 
aid  is  handled  by  one  agency.  The  following  condensation  of 
some  of  the  principal  statistics  of  this  work  for  Allegheny  and 
Philadelphia  counties,  the  most  populous  in  the  state,  will  be  of 
interest.  The  figures  are  taken  from  their  annual  reports  pre- 
pared for  the  legislatui'e  of  1915. 


281 


CHILD   WELFARE    WORK    IN    PENNSYLVANIA 

TABLE     O. — WORK     UNDER     MOTHERS'    ASSISTANCE    ACT     IN     ALLE- 
GHENY   COUNTY    AND    PHILADELPHIA    COUNTY    DURING    I914 


Allegheny 
County 


Philadelphia 
County 


Total  applications  for  aid 

Applications  not  yet  investigated 

Applications  investigated 

Investigated  applications  not  recommended 

Families  granted  aid 

Children  in  families  aided 

Average  number  children  in  families  aided 

Religious  affiliation  of  families 

Jewish 

Protestant 

Catholic 
Average  assistance  per  family  per  month 
Administrative  fund  for  year 
Maximum  possible  appropriation  for  year 


1.663 

1.358 

993 

788 

670 

570 

565 

442 

105 

128 

409 

551 

3-9 

4 

7 

5 

46 

38 

52 

85 

$20 

$24 

$2,400 

$3,000 

$26,500 

$40,500 

282 


CHAPTER   XXX 
SOME    REVISED  AND    RECENT  STATUTES 

A  NUMBER  of  Pennsylvania  laws  relating  to  children  re- 
centl}'  have  been  under  review,  and  a  few  new  ones  of  great 
importance    were    enacted    by    the    legislature    of    1913. 
Some    of    these  which    have  to  do  with  the  classes   of   children 
considered  in  this  volume  are  here  noted. 

I.     Detention  Homes  of  Juvenile  Courts 

The  act  of  1903  making  mandatory  provision  for  the  special 
custody  of  children  awaiting  trial  or  hearing  in  the  courts  of  the 
various  counties,  was  amended  by  Act  No.  420  of  the  General 
Assembly  of  191 3,  and  approved  by  Governor  John  K.  Tener 
July  21,  19 1 3.     In  its  amended  form  the  law  reads  as  follows: 

It  shall  be  the  duty  of  the  board  of  county  commissioners,  in 
each  county  of  the  Commonwealth,  to  provide,  furnish  and  heat,  within 
the  county,  a  separate  room,  or  rooms,  or  a  suitable  building,  to  be  used 
exclusively  for  the  confinement  of  any  and  all  children,  under  the  age  of 
sixteen  years,  who  may  be  in  custody  awaiting  trial  or  hearing  in  the 
courts  of  the  county,  and  to  provide  for  the  maintenance  and  care  of 
such  children  while  in  custody. 

2.     Children  on  Probation 

Another  of  the  acts  of  1903,  amended  in  191 1,  was  still 
further  amended  in  191 3  in  Act  No.  469.  It  was  an  act  "defining 
the  powers  of  the  several  courts  of  quarter  sessions  .  .  .  with 
reference  to  the  care,  treatment  and  control  of  dependent,  neg- 
lected, incorrigible  and  delinquent  children,  under  the  age  of  six- 
teen years."  The  important  amendment  of  this  act  is  that  of 
Section  6,  which  includes  the  latest  legislative  expression  on  proba- 
tion, having  been  approved  by  Governor  John  K.  Tener  July  25, 
1913.     The  section  reads  as  follows: 

283 


CHILD   WELFARE    WORK    IN    PENNSYLVANIA 

In  the  case  of  a  delinquent,  dependent,  neglected  or  incorrigible 
child,  the  court  may  continue  the  hearing  from  time  to  time,  and  may 
commit  the  child  to  the  care  and  guardianship  of  a  probation  officer, 
duly  appointed  by  the  court,  and  may  allow  said  child  to  remain  in  its 
own  home,  subject  to  the  visitation  of  the  probation  officer, — such  child 
to  report  to  the  probation  officer  as  often  as  may  be  required,  and  sub- 
ject to  be  returned  to  the  court  for  further  proceedings  whenever  such 
action  may  appear  to  be  necessary,— or  the  court  may  commit  the 
child  to  the  care  and  guardianship  of  the  probation  officer,  to  be  placed 
in  a  suitable  family  home,  subject  to  the  supervision  of  such  probation 
officer;  or  it  may  authorize  the  said  probation  officer  to  board  out  the 
said  child  in  some  suitable  family  home,  in  case  provision  is  made  by 
voluntary  contribution,  or  otherwise,  for  the  payment  of  the  board  of 
such  child,  or  may  direct  that  the  payment  of  the  board  of  such  child 
be  made  by  the  proper  county,  until  a  suitable  provision  may  be  made 
for  the  child  in  a  home  without  such  payment;  or  the  court  may  com- 
mit the  child  to  a  suitable  institution  for  the  care  of  delinquent  children, 
or  to  any  society,  duly  incorporated,  having  for  one  of  its  objects  the 
protection  of  dependent,  neglected,  or  delinquent  children,  and  may 
direct  that  the  payment  of  the  board  of  such  child  shall  be  made  by  the 
proper  county. 

3.     Responsibility  for  Maintenance 

To  define  who  shall  be  responsible  for  the  maintenance  of 
neglected  or  dependent  children  placed  by  the  courts  in  the  care 
and  custody  of  any  parties  or  association,  the  same  legislature 
passed  the  following,  known  as  Act  No.  122,  and  approved  by 
Governor  John  K.  Tener  May  8,  191 3. 

Where  any  neglected  or  dependent  child  is  or  shall  be  committed 
to  the  care  and  custody  of  any  association,  society,  person,  or  family, 
by  any  court,  and  an  order  for  the  payment  of  the  maintenance  of  the 
child  and  the  expense  of  such  commitment  is  made  upon  the  proper 
county,  in  pursuance  of  the  laws  of  this  Commonwealth,  the  county 
from  which  such  child  has  been  committed  to  the  said  association, 
society,  person,  or  family,  shall  be  liable  to  the  said  association,  society, 
person,  or  family  for  the  maintenance  of  the  said  child  and  all  expenses 
connected  therewith:  Provided,  That  the  county  shall  in  all  cases  have 
full  recourse  to  recover  all  expenses  incurred  in  behalf  of  said  child  so 
committed  from  the  parties  or  persons  or  poor  district  properly  charged 
therewith  under  the  laws  of  this  Commonwealth. 

284 


some  revised  and  recent  statutes 

4.     Mothers'  Assistance 

An  act  of  great  importance  is  that  passed  b\-  the  legislature 
of  1913,  to  provide  monthly  payments  "to  indigent,  widowed,  or 
abandoned  mothers,  for  partial  support  of  their  children  in  their 
own  homes."  The  "  Mothers'  Pension  Law,"  as  it  is  commonly 
known,  was  Act  No.  80,  approved  by  Governor  John  K.  Tener 
April  29,  19 1 3.  The  first  section  states  that  the  chief  executive 
"shall  appoint  not  less  than  five  and  not  more  than  seven  women, 
residents  of  each  county  desiring  to  avail  itself  of  the  provisions  of 
this  Act,  to  act  as  trustees."  The  second  section  places  the 
authority  for  the  administration  of  the  act  "solely  in  the  hands  of 
the  trustees  appointed  annually  by  the  Governor,"  who  are  to 
serve  without  pay;  arranges  for  investigators  in  every  county  and 
defines  the  maximum  expense;  and  makes  a  preliminary  appro- 
priation of  $200,000  from  state  funds  to  cover  two  years'  work, 
proportionately  available  to  the  various  counties,  provided  "an 
equal  amount  has  been  provided  by  the  government  of  such  county 
desiring  the  benefits  of  this  Act."  Sections  3  and  5  which  follow 
are  quoted  in  full  as  being  the  central  and  essential  features  of  the 
law. 

Section  3.  The  trustees  shall  in  no  case  recommend  payment  to 
any  widow  or  abandoned  mother  until  they  are  thoroughly  satisfied  that 
the  recipient  is  worthy  in  every  way,  and  that,  in  order  to  keep  her  chil- 
dren in  her  own  home,  a  monthly  payment  is  necessary;  and  then  only 
upon  satisfactory  reports  from  a  teacher  in  the  district  school,  stating 
that  the  child  or  children  of  the  recipient  of  this  fund  are  attending 
school,  provided  they  are  of  proper  age  and  physically  able  to  do  so. 
The  combined  total  maximum  payment  shall  not  exceed  twelve  dollars 
per  month  for  one  child,  twenty  dollars  per  month  for  two  children, 
twenty-six  dollars  per  month  for  three  children,  and  five  dollars  per 
month  for  each  additional  child.  These  payments  to  continue  at  the 
will  of  the  trustees,  but  not  beyond  the  time  that  the  law  will  permit  a 
child  to  secure  employment. 

Section  5.  No  family  shall  be  a  beneficiary  under  this  act  unless 
the  mother  has  been  a  continuous  resident  of  the  county  in  which  she 
is  applying  for  the  benefits  under  this  act,  for  a  period  of  three  years. 

As  the  act  left  it  to  the  decision  of  the  counties  whether  or 
not  they  would  avail  themselves  of  its  provisions,  and  after  deci- 

285 


CHILD   WELFARE    WORK    IN    PENNSYLVANIA 

sion  to  participate  an  appointment  by  the  governor  of  the  trustees 
was  required,  the  actual  apphcation  of  the  law  has  been  delayed. 
In  February,  1914,  trustees  had  been  appointed  in  only  a  part  of 
the  counties.  The  reception  accorded  the  plan,  the  number  of 
applications  received  and  the  per  cent  approved,  and  the  amounts 
found  necessary  to  meet  the  pension  payments,  are  matters  of 
great  interest  in  regard  to  which  only  time  will  provide  answers.* 

5.     Desertion  of  Families 

The  legislature  of  191 3  in  Act  330,  approved  by  the  governor 
June  12,  191 3,  increased  the  powers  of  courts  in  summary  proceed- 
ings "for  desertion  or  non-support  of  wives,  children,  or  aged 
parents,  by  directing  that  imprisonment  in  such  cases  be  at  hard 
labor,  in  such  institution  as  the  court  shall  name,  with  wages  pay- 
able to  the  wives,  children  or  parents."  Section  i  of  the  act, 
which  is  followed  by  others  detailing  the  proceedings  in  the  matter 
of  bail,  if  obtained,  and  arrangement  for  supervision  by  probation 
officers,  is  as  follows: 

Whenever  in  any  proceedings  brought  against  any  husband  or 
father,  wherein  it  is  charged  that  he  has  without  reasonable  cause  sep- 
arated himself  from  his  wife  or  children,  or  from  both,  or  has  neglected 
to  maintain  his  wife  or  children;  or  in  any  proceedings  where  any  child  of 
full  age  has  neglected  or  shall  neglect  to  maintain  his  or  her  parents,  not 
able  to  work  or  of  sufficient  ability  to  maintain  themselves;  the  court 
having  jurisdiction  shall  commit  the  defendant  to  imprisonment,  for  want 
of  a  bond,  with  security  or  otherwise;  the  court  may  order  the  defend- 
ant to  be  imprisoned  at  hard  labor,  under  existing  laws,  or  laws  that  may 
hereafter  be  passed,  in  such  penal  or  reformatory  institution  in  this  Com- 
monwealth as  the  court  shall  direct;  or  the  court  may  discharge  a  de- 
fendant upon  his  own  recognizance,  in  the  custody  of  a  desertion  proba- 
tion officer,  or  other  person,  subject  to  such  conditions  as  the  court  may 
in  its  discretion  impose. 

6.     Village  for  Feeble-minded  Women 

To  increase  the  provision  for  the  care  of  feeble-minded  per- 
sons, Act  No.  817  was  passed  by  the  legislature  and  approved  by 

*See  Chapter  XXIX,  p.  276,  for  additional  details  in  regard  to  Mothers' 
Assistance;  and  A  Child  Welfare  Symposium,  supplement  to  this  volume,  p.  131. 
Article  by  Rabbi  Rudolph  1.  Coffee  on  Why  Pennsylvania  needs  a  Widows'  Pension 
Law. 

286 


SOME  REVISED  AND  RECENT  STATUTES 

the  governor  Jul\'  25,  1913.  This  act  estabHshes  on  a  suitable 
tract  of  land,  to  be  selected  "on  a  portion  of  the  state  forest 
reserves,"  a  state  village  for  feeble-minded  women,  and  provides 
for  "the  commitment  thereto  of  feeble-minded  females  between 
the  ages  of  sixteen  and  forty-five  years."  It  is  to  be  managed  by 
a  board  of  nine  members  appointed  by  the  governor,  and  the  sum 
of  $40,000  was  appropriated  "for  the  preliminary  clearing,  im- 
provement and  surveys  of  the  land  selected."  The  first  section 
is  of  especial  interest  as  it  outlines  the  plan  and  purpose  of  the 
institution. 

A  State  village  for  feeble-minded  women,  for  the  care  of  feeble- 
minded women  between  the  ages  of  sixteen  and  forty-five,  is  hereby  con- 
stituted and  established,  the  ground  and  buildings  for  which  are  hereby 
directed  to  be  selected  and  constructed,  which  village  shall  be  governed 
and  maintained  in  the  manner  hereinafter  provided,  and  shall  be  known 
as  the  Pennsylvania  Village  for  Feeble-Minded  Women.  That  this 
institution  shall  be  entirely  and  specially  devoted  to  the  reception,  seg- 
regation, detention,  care  and  training  of  feeble-minded  women  of  child- 
bearing  age;  and  shall  be  so  planned,  in  the  beginning  and  construction, 
as  shall  provide  separate  classification  of  the  numerous  groups  em- 
braced under  the  terms  "idiotic,"  "imbecile,"  or  "feeble-minded."  It 
is  specifically  determined  that  the  processes  of  an  agricultural  training 
shall  be  primarily  considered  in  the  educational  department;  and  that 
the  employment  of  the  inmates  in  the  care  and  raising  of  stock,  and  the 
cultivation  of  fruits,  vegetables,  roots,  et  cetera,  shall  be  made  tributary 
to  the  maintenance  of  the  institution. 

7.     Boards  of  Visitation 

The  recognized  necessity  for  more  careful  supervision  of  all 
societies,  associations,  and  institutions  caring  for  dependent,  neg- 
lected, or  delinquent  children,  led  to  the  enactment  of  a  law 
providing  for  county  boards  of  visitation.  Act  No.  301,  approved 
by  the  governor  June  6,  191 3,  amends  a  former  act,  and  its  first 
and  principal  section  now  reads: 

It  shall  be  the  duty  of  the  court  of  common  pleas  in  each  county 
within  this  Commonwealth  to  appoint  a  board,  consisting  of  six  or  more 
reputable  citizens,  who  shall  serve  without  compensation,  to  constitute 
a  Board  of  Visitors,  whose  duty  it  shall  be  to  visit,  at  least  once  a  year, 
all  institutions,  societies,  and  associations,  within  the  county,  into  whose 

287 


CHILD   WELFARE    WORK    IN    PENNSYLVANIA 

care  and  custody  dependent,  neglected,  or  delinquent  children  shall  be 
committed  under  the  provisions  of  the  laws  of  this  Commonwealth;  and 
all  charitable,  reformatory,  or  penal  institutions,  and  all  institutions, 
within  the  county,  which  receive  their  inmates  from  more  than  one 
county,  and  are  supported  or  managed,  in  whole  or  in  part,  by  the  Com- 
monwealth, or  any  of  the  officers  thereof;  and  all  institutions,  within  the 
county,  which  are  wholly  supported  and  managed  by  any  city,  county, 
borough,  or  poor  district  of  the  commonwealth.  Such  visits  shall  be  made 
monthly  by  not  less  than  two  of  the  members  of  the  board,  who  shall 
report  to  the  board.  The  said  Board  of  Visitors  shall  make  reports  to 
the  court,  from  time  to  time,  on  matters  pertaining  to  the  welfare  of 
the  institutions,  particularly  the  treatment  received  by  the  inmates.  A 
copy  of  such  report  shall  be  submitted  by  the  Board  to  the  persons  in 
charge  of  such  institutions,  societies,  and  associations.  The  Board 
shall  make  an  annual  report  to  the  Board  of  Public  Charities. 
The  said  Board  of  Visitors  shall  be  entitled  to  receive,  from  the  counties 
in  which  they  shall  be  appointed,  such  sum  or  sums  of  money  for  actual 
and  necessary  expenses  as  may  be  approved  by  the  board  of  county 
commissioners  in  their  respective  counties. 

8.     State  Supervision* 

The  duty  of  oificial  visitation  and  supervision  of  all  charita- 
ble, reformatory,  or  correctional  institutions  within  the  state  is 
vested  in  the  board  of  public  charities.  The  act  of  1869  creating 
the  board  was  amended  by  the  legislature  of  191 3,  and  its  scope 
and  powers  in  these  respects  greatly  enlarged.  The  fifth  and 
eighth  sections  of  the  act,  approved  by  Governor  John  K.  Tener 
May  I,  191 3,  are  so  comprehensive  on  some  lines  as  to  leave  little 
to  be  desired,  except  the  still  deferred  increased  appropriation  to 
enable  the  board  to  carry  their  provisions  into  effect.  In  spite  of 
their  length,  the  sections  are  so  important  that  they  are  quoted 
in  full. 

Section  5.  The  said  commissioners  shall  have  full  power  either 
by  themselves  or  the  general  agent,  at  all  times  to  look  into  and  examine 
the  condition  of  all  charitable,  reformatory,  or  correctional  institutions 
within  the  State,  financially  and  otherwise;  to  inquire  and  examine  into 
their  methods  of  instruction,  the  government  and  management  of  their 
inmates,  the  official  conduct  of  trustees,  directors,  and  other  oificers  and 

*  Chapter  XXVII,  p.  256,  is  entirely  devoted  to  the  discussion  of  State 
Supervision  of  Children's  Institutions. 

288 


SOME    REVISED    AND    RECENT    STATUTES 

employes  of  the  same;  the  condition  of  the  buildings,  grounds,  and  other 
property  connected  therewith,  and  into  all  other  matters  pertaining  to 
their  usefulness  and  good  management;  and  for  these  purposes  they  shall 
have  free  access  to  the  grounds,  buildings,  and  all  books  and  papers  re- 
lating to  said  institutions;  and  all  persons  now  or  hereafter  connected  with 
the  same  are  hereby  directed  and  required  to  give  such  information,  and 
afford  such  facilities  for  inspection,  as  the  said  commissioners  may  require; 
and  any  neglect  or  refusal  on  the  part  of  any  oflficer  or  person  connected 
with  such  institution  to  comply  with  any  of  the  requirements  of  this  act 
shall  subject  the  offender  to  a  penalty  of  one  hundred  dollars  ($ioo),  to 
be  sued  for  and  collected  by  the  general  agent  in  the  name  of  the  board. 
The  commissioners  shall  also  have  power  to  employ  such  experts,  clerks, 
stenographers,  and  other  employes  of  all  kinds  as  the  business  of  the 
Board  of  Public  Charities  and  that  of  the  Committee  on  Lunacy  may 
require. 

Whenever,  upon  the  examination  of  any  jail,  prison,  penitentiary, 
or  almshouse,  any  condition  shall  be  found  to  exist  therein  which,  in  the 
opinion  of  said  commissioners,  is  unlawful  or  detrimental  to  the  proper 
maintenance,  discipline,  and  hygienic  conditions  of  such  institution,  or 
to  the  proper  care,  maintenance,  and  custody  of  the  inmates  therein,  the 
said  commissioners  shall  have  power  to  make  such  recommendation  to 
the  warden,  inspectors,  trustees,  sheriff,  commissioners,  overseers  of  the 
poor,  or  other  officer  or  officers  charged  by  law  with  the  government  of 
such  institution,  as  said  commissioners  may  deem  necessary  and  proper 
to  correct  the  said  objectionable  condition;  and  in  case  of  the  neglect, 
failure,  or  refusal  of  such  officer  or  officers  to  comply  with  such  recommen- 
dation, or  in  case  of  his  or  their  failure  to  make  such  attempt  to  comply 
therewith  as  shall  be  satisfactory  to  the  said  commissioners,  within  ninety 
days  from  the  date  of  service  of  said  recommendation  upon  them,  the  said 
commissioners  shall  certify  the  facts  in  the  case,  together  with  their 
recommendation,  to  the  district  attorney  of  the  proper  county,  whose 
duty  it  shall  be  thereupon  to  proceed  by  indictment  or  otherwise,  to  rem- 
edy the  said  objectionable  condition. 

Section  8.  It  shall  be  the  duty  of  all  persons  having  charge  or 
oversight  over  the  poor  in  any  city  or  county  of  this  State,  or  in  any 
subdivision  thereof,  and  all  persons  having  charge  or  control  of  county 
jails  or  prisons  or  work-houses  and  all  others  having  charge  or  control 
over  other  charitable,  reformatory,  or  correctional  institutions,  not  now 
by  law  required  to  make  an  annual  report  of  the  condition  of  the  same, 
to  make  report  annually  to  the  said  commissioners,  at  such  time,  upon 
such  form,  and  in  such  manner  as  they  may  prescribe,  of  such  facts  and 

289 


CHILD   WELFARE    WORK    IN    PENNSYLVANIA 

Statements  concerning  the  same  as  they  may  require;  and  all  charitable, 
reformatory,  and  correctional  institutions  now  required  by  law  to  make 
annual  reports  shall  hereafter  make  and  transmit  the  same  to  the  said 
commissioners,  on  or  before  the  first  day  of  September  in  each  year;  and 
all  such  institutions  now  receiving  or  that  may  hereafter  desire  to  receive 
State  aid  shall  annually  give  notice  to  said  commissioners,  on  or  before 
the  first  day  in  September  in  each  year,  of  the  amount  of  any  application 
for  State  aid  which  they  may  propose  to  make,  and  of  the  several  purposes 
to  which  such  aid,  if  granted,  is  to  be  applied.  Any  neglect  or  refusal  on 
the  part  of  any  person  having  charge  or  oversight  over  the  poor,  or  on  the 
part  of  any  persons  having  charge  or  control  over  any  jail,  prison,  work- 
house, or  charitable,  reformatory  or  correctional  institution,  to  make  the 
report  required  by  this  act,  or  otherwise  required  by  law,  shall  subject  the 
oflfender  to  a  penalty  of  one  hundred  dollars  ($ioo),  to  be  sued  for  and 
collected  by  the  General  Agent  in  the  name  of  the  board. 

9.    The  Sixty-Day  Law 

In  the  chapter  on  almshouses  mention  is  made  of  the  so- 
called  Sixty-Day  Law.  When  it  was  enacted  in  1883  this  law  was 
an  advanced  and  progressive  measure.  It  is  now  out-of-date,  and 
should  be  superseded  by  one  absolutely  forbidding  the  care  of 
children  in  almshouses  and  poorhouses.  Sections  i  and  2  of  the 
act  are  as  follows: 

Section  i.  It  shall  not  be  lawful  for  the  overseers  or  guardians 
or  directors  of  the  poor  in  the  several  counties,  cities,  boroughs  and  town- 
ships of  this  Commonwealth,  to  receive  into  or  retain  in  any  almshouse  or 
'poor-house,  any  child  between  two  and  sixteen  years  of  age,  for  a  longer 
time  than  sixty  days,  unless  such  child  be  an  unteachable  idiot,  an  epilep- 
tic or  a  paralytic,  or  otherwise  so  disabled  or  deformed  as  to  render  it 
incapable  of  labor  or  service.     (Act  of  June  13,  1883.) 

Section  2.  It  shall  be  the  duty  of  said  overseers  or  other  per- 
sons having  charge  of  the  poor,  to  place  all  pauper  children  who  are  in 
their  charge,  and  who  are  over  two  years  of  age  (with  the  exception 
named  in  the  first  section  of  this  act)  in  some  respectable  family  in  this 
State,  or  in  some  educational  institution  or  home  for  children;  and  one  of 
the  said  officers  shall  visit  such  children,  in  person  or  by  agent,  not  less 
than  once  every  six  months,  and  make  all  needful  inquiries  as  to  their 
treatment  and  welfare,  and  shall  report  thereon  to  the  board  of  overseers 
or  other  officers  charged  with  the  care  of  such  children.  (Act  of  June 
13,  1883.) 

290 


some  revised  and  recent  statutes 

10.     State  Appropriations 

The  matter  of  state  appropriations  to  private  institutions  is 
a  live  issue  throughout  the  state.  The  legal  provisions  hedging 
such  action  are  not  statutory  but  constitutional.  The  following 
constitutional  provisions,  relative  to  appropriation  of  state  money 
to  charities,  are  quoted  from  a  Digest  of  the  Laws  Relating  to  the 
Board  of  Public  Charities.* 

No  appropriation  shall  be  made  to  any  charitable  or  educational 
institution  not  under  the  absolute  control  of  the  Commonwealth,  other 
than  Normal  Schools  established  by  law  for  the  professional  training  of 
teachers  for  the  public  schools,  except  by  a  vote  of  two-thirds  of  all  the 
members  elected  to  each  House.— Section  XVII,  Art.  Ill,  Constitution  of 
Pennsylvania. 

No  appropriations,  except  for  pensions  or  gratuities  for  military 
services,  shall  be  made  for  charitable,  educational  or  benevolent  purposes, 
to  any  person  or  community,  nor  to  any  denominational  or  sectarian  in- 
stitution, corporation  or  association. — Section  XVIII,  Art.  Ill,  Constitu- 
tion of  Pennsylvania. 

The  General  Assembly  may  make  appropriations  of  money  to 
institutions  wherein  the  widows  of  soldiers  are  supported  or  assisted,  or 
the  orphans  of  soldiers  are  maintained  or  educated;  but  such  appropria- 
tions shall  be  applied  exclusively  to  the  support  of  such  widows  or  or- 
phans.—Section  XIX,  Art.  Ill,  Constitution  of  Pennsylvania. 

It  is  necessary  that  many  new  laws  be  enacted  to  keep  the 
statutes  abreast  of  the  times  and  of  the  social  progress  of  the 
people.  In  this  there  is  danger  on  the  one  hand  of  rushing  into 
legislation  beyond  the  danger  point,  and  on  the  other,  of  being 
held  back  by  conservatives  who  insist  on  letting  old  laws  stand 
for  fear  of  making  things  worse.  There  is  a  golden  mean  in  law 
making  as  in  all  other  important  matters.  The  right  attitude  of 
the  citizen  and  of  the  legislator  is  that  of  watchful  receptiveness. 
When  convinced  that  a  law  is  needed  and  will  be  for  the  best 
interests  of  the  people,  it  should  be  worked  for  and  passed.  But 
the  waste-basket  should  be  used  freely  for  half-baked  projects  and 
the  ill-balanced  schemes  of  visionary  cranks. 

The  words  of  President  Frank  Tucker  of  New  York,  at  the 
opening  of  the  National  Conference  of  Charities  and  Correction  at 

*Digest  of  the  Laws  Relating  to  the  Board  of  Public  Charities,  p.  26, 
291 


CHILD   WELFARE    WORK    IN    PENNSYLVANIA 

Seattle  in  191 3,  are  so  wise  and  suggestive  that  they  are  here 
quoted  as  expert  advice  on  the  subject  of  laws  and  law  making: 
"Never  before  in  our  history  has  such  a  mass  of  legisla- 
tion, most  of  it  ill  thought  out  and  badly  drafted,  been  offered 
for  the  benefit  of  the  people.  It  is  the  inevitable  response  to  the 
cry  for  Social  Justice  offered  by  the  fake  reformer  and  the  in- 
competent legislator,  and  with  our  national  tendency  to  search 
for  panaceas  that  will  stop  the  pain  and  cure  the  disease  at  once, 
we  are  storing  up  for  ourselves  economic  and  social  diseases  that 
will  become  painfully  apparent  when  the  legislative  narcotic  has 
failed  to  work.  Let  me  beg  of  the  social  workers  of  the  country 
never  to  suggest  or  support  a  legislative  bill  until  its  language 
has  been  made  exact  and  its  effects  have  been  studied  to  their 
minutest  ramifications.  We  are  insane  for  the  act  of  legislation; 
we  are  feeble-minded  in  failing  to  realize  that  only  the  broadest 
legislation  on  human  relations  and  conduct  can  be  enforced,  and 
to  demand  that  the  multifarious  details  of  human  relations  and 
conduct  shall  be  adjusted  and  carried  on  according  to  individual 
and  community  character  and  standards."  * 

♦National  Conference  of  Charities  and  Corrections.     Proceedings,    1913, 
pp    11-12, 


292 


CHAPTER   XXXI 
TRANSITION   AND   PROGRESS 

TO  most  people  the  present  is  evidently  an  era  of  transition. 
It  is  called  progress  because  most  people  believe  the 
changes  necessarily  mean  betterment.  Many  changes 
undoubtedly  are  improvements,  but  there  are  sufficient  exceptions 
to  make  the  most  progressive  anxious  for  strong  and  efficient  hands 
upon  the  helm  of  events. 

In  the  realm  of  social  work  the  times  are  especially  character- 
ized by  revision  of  old  methods  and  the  invention  and  adoption  of 
new  ones.  A  single  decade  has  revolutionized  the  ideas  of  social 
workers  and  transformed  the  work  of  many  agencies  and  institu- 
tions. At  present  a  sifting  process  is  going  on,  to  separate  the 
good  wheat  of  wise  methods  and  efficient  agencies  from  the  worth- 
less chaff  of  transient  fads  and  useless  experiments. 

Dr.  Walter  Rauschenbusch,  in  Christianity  and  the  Social 
Crisis,  very  aptly  says:  "Western  civilization  is  passing  through 
a  social  revolution  unparalleled  in  history  for  scope  and  power. 
Its  coming  was  inevitable.  The  religious,  political,  and  intellec- 
tual revolutions  of  the  past  five  centuries,  which  together  created 
the  modern  world,  necessarily  had  to  culminate  in  an  economic 
and  social  revolution  such  as  is  now  upon  us."* 

This  statement  is  the  key  to  many  things  which  have  taken 
place  in  the  last  quarter  century.  That  the  social  revolution  of 
which  Dr.  Rauschenbusch  wrote  is  a  fact  of  today,  every  intelli- 
gent social  and  religious  worker  realizes.  The  philosophic  student 
of  social  science  can  mark  its  periodic  advance  like  the  waves  upon 
the  shore  when  the  tide  comes  in.  Even  the  ordinary  citizen 
can  not  help  noting  the  accelerating  changes  in  social  and  living 
conditions. 

All  over  the  nation  immense  commercial,   industrial,   and 

*Rauschenbusch,  Weaker:  Christianity  and  the  Social  Crisis,  p.  xi.  New 
York,  Macmillan,  1907. 

293 


CHILD   WELFARE   WORK    IN    PENNSYLVANIA 

political  problems  are  struggling  for  solution.  In  the  world  of 
thought  millions  of  minds  are  absorbed  in  social  and  religious 
questions.  All  issues  and  methods  are  undergoing  upheaval  and 
realignment  as  the  social  movement  progresses.  A  combined 
unrest  and  altruism  permeates  all  classes  of  modern  society. 
Special  forces,  new  and  old,  civic  and  personal,  tangibly  evident, 
or,  like  electricity,  potent  but  invisible,  surcharge  and  inspire  the 
people  of  America. 

The  variations  through  which  this  generation  is  passing 
make  new  demands  and  impose  new  duties  upon  each  individual 
and  every  community.  What  the  future  shall  bring  forth  depends 
upon  the  spirit  in  which  these  demands  are  met  and  these  duties 
performed.  If  the  people  of  this  age  are  wrongly  dominated,  our 
civilization  may  wane  and  our  race  degenerate. 

The  philosophy  of  social  service  is  each  year  more  fully  de- 
fined in  the  expressions  of  leading  social  workers.  Some  of  the 
general  ideas  and  principles  now  current  may  well  find  record  here 
as  starting  points  for  the  progressive  thinkers  and  workers  of  the 
future. 

1.  As  now  employed,  the  terms  "social  service"  and  "social 
worker"  are  both  distinctive  and  indefinite.  They  imply  direct 
service  of  some  sort  in  behalf  of  the  constituents  or  the  instru- 
mentalities of  society,  but  leave  unexpressed  the  lines  of  effort  in 
which  social  servants  are  engaged.  Yet  a  fairly  satisfactory  defi- 
nition of  social  service  is:  Altruistic  efforts  to  uplift  humanity. 

2.  Those  who  are  called  "social  workers"  are  presumed  to 
seek  to  remedy  human  ills  and  to  advance  the  welfare  of  mankind. 
Therefore  it  is  only  proper  and  consistent  for  all  such  to  set  a  noble 
personal  example  to  their  fellow  citizens. 

3.  Social  workers  engaged  in  the  care  of  dependent,  defective, 
or  delinquent  children,  should  realize  that  in  measure  beyond  most 
others  in  their  hands  are  threads  of  destiny  and  upon  them  rest 
sacred  obligations. 

4.  The  philosophy  of  social  service  declares  that  he  who  is 
in  need  is  our  neighbor,  indeed  our  brother,  regardless  of  "race, 
color,  or  previous  condition." 

5.  The  sense  of  equality  is  the  only  right  basis  of  social 

294 


TRANSITION    AND    PROGRESS 

service.     This  does  not  imply  equality  of  education,  culture,  or 
financial  standing,  but  equality  of  rights  as  a  human  being. 

6.  The  general  principles  of  social  welfare  and  the  pressing 
needs  of  practical  work  both  demand  the  largest  possible  measure 
of  co-operative  effort.  Isolation  in  social  service  in  this  age  means 
incapacitation.  Neither  workers  nor  organizations  can  stand 
alone.  To  attempt  social  work  without  service  associates  is  to 
invite  failure  and  waste  money  and  effort. 

7.  Co-operation  is  said  to  have  three  stages.  The  first  is 
merel>'  friendly  intercourse;  the  second  is  where  agencies  recognize 
differences  in  function  and  begin  to  refer  to  its  proper  agency  work 
that  falls  within  its  legitimate  province;  the  third  stage  is  where  all 
the  agencies  do  things  together.  The  first  stage  already  has  been 
reached  by  a  majority  of  social  service  organizations.  The  second 
stage  has  been  attained  by  a  small  minority,  and  even  among  them 
much  unnecessary  waste  and  competition  yet  remain.  Almost 
everywhere  the  third  stage  is  yet  a  dream  of  the  future. 

8.  The  philosophy  of  social  service  goes  beyond  even  the 
third  stage  of  co-operation,  and  calls  for  the  ultimate  coordination 
of  welfare  agencies  and  institutions  into  related  systems.  Whether 
the  management  be  public  or  private,  and  the  support  by  taxation 
of  all  the  people  or  the  generous  donations  of  individuals,  all  wel- 
fare work  will  ultimately  be  classified  according  to  kinds,  syste- 
matically arranged  in  groups,  and  administered  according  to 
approved  principles  of  efficiency  and  economy. 

9.  The  third  stage  of  co-operation,  and  the  ultimate  coordi- 
nation into  systems,  can  be  accomplished  only  by  the  adoption  of 
definite  state  programs,  in  which  the  needs  of  every  dependent 
class  are  given  adequate  consideration  and  existing  agencies  and 
institutions  accept  limited  responsibilities. 

10.  The  most  influential  leaders  in  social  service  declare  that 
true  philosophy  now  demands  distinct  recognition  everywhere  of 
the  part  religion  plays  in  the  development  of  humanity.  Individ- 
uals and  communities  rise  or  fall  as  they  yield  to  the  sanctions  and 
accept  the  influences  of  religion.  Welfare  work  in  civilized  lands 
is  almost  wholly  due  to  its  inspiration  and  maintained  by  its  moral 
and  financial  support.     Lacking  religion's  conserving  and  elevating 

295 


CHILD   WELFARE    WORK    IN    PENNSYLVANIA 

power,  individual  or  community  life  would  degenerate  and  the 
strongest  civilization  speedily  decay. 

1 1 .  Social  service  in  the  present  generation  increasingly  de- 
mands the  spirit  and  power  of  religion  to  make  it  effective,  and  this 
spirit  and  power  must  be  the  dynamics  behind  all  social  move- 
ments. The  various  religious  bodies  must  combine  in  federations, 
or  unite  in  nonsectarian  organizations,  to  obtain  social  results. 
Moral  and  material  uplift  for  the  multitudes  must  come  from  the 
united  efforts  of  those  who  have  received  both  social  training  and 
spiritual  power.  The  elevation  of  the  masses  must  come  from 
forces  above  them.  They  may  be  drawn  upward;  history  records 
no  instance  of  people  being  lifted  from  below. 

12.  All  agree  that  it  is  a  great  thing  to  be  engaged  in  the  task 
of  making  this  world  better.  Yet  it  is  beyond  question  true  that 
the  influence  which  moves  most  powerfully  the  hearts  and  lives  of 
men  is  one  which  recognizes  that  the  life  we  now  live  is  prepara- 
tory to  another.  In  other  words,  there  is  no  hope  that  can  be 
implanted  in  the  hearts  of  men  that  will  compare  with  the  hope 
of  immortality.  It  is  the  duty  of  those  engaged  in  social  service 
to  make  physical  ministrations  a  John  the  Baptist  in  opening 
hearts  to  receive  the  higher  and  holier  spiritual  service  which  we 
denominate  religion.  The  two  should  be  conjoined.  The  build- 
ing of  character,  the  planting  of  faith,  and  the  stimulation  of  hope 
should  go  hand  in  hand  with  the  giving  of  food  and  shelter  and  the 
amelioration  of  physical  ills. 

The  principles  and  ideals  in  these  12  paragraphs  indicate  in 
some  degree  the  spirit  and  purposes  of  the  Department  of  Child- 
Helping  of  the  Russell  Sage  Foundation.  It  is  believed  that 
advancement  along  these  lines  in  this  era  of  transition  will  be  true 
progress. 

An  eminent  social  worker  said  as  he  was  nearing  the  close  of 
life:  "My  highest  ambition  has  been  to  forge  a  few  links  to  bind 
our  people  to  a  better  future."  The  Department  desires  to  accept 
as  its  own  the  ambition  of  the  dying  philanthropist.  This  study 
and  its  concomitants  are  such  links  in  a  great  chain  of  betterment 
now  being  forged  to  "improve  social  and  living  conditions  in  the 
United  States  of  America." 

296 


TRANSITION    AND    PROGRESS 

The  attitude  of  the  Department  toward  all  child-caring  agen- 
cies and  institutions  and  their  wards,  their  workers,  and  their  work, 
is  that  of  friendliness  and  impartial  helpfulness.  The  Department 
has  no  axe  to  grind,  no  personal  favors  to  secure  or  dispense,  and 
no  financial  interest  to  seek  or  to  serve.  It  is  wholly  interested 
in  the  welfare  of  needy,  neglected,  and  dependent  children  of  all 
classes,  and  the  relations  of  these  to  the  welfare  of  society  in  general 
and  of  our  future  national  life. 

In  doing  what  it  can  to  promote  the  welfare  of  all  concerned, 
the  department  advocates  what  it  deems  to  be  the  best  plans, 
methods,  and  principles  now  extant  in  child-caring  work.  Some- 
times such  advocacy  forces  it  to  antagonize  not  the  persons  but 
the  work  of  some  of  its  best  friends.  It  can  not  always  approve  of 
the  institutional  conditions  that  come  under  its  observation,  nor 
of  the  spirit  shown  by  institution  officers  or  managing  boards. 
But  such  disapproval  must  not  be  thought  to  be  proof  of  antag- 
onism to  any  real  welfare  work,  but  the  opposite. 

Any  criticisms  in  connection  with  this  study  have  been  made 
in  a  friendly  spirit  and  with  no  animus  toward  any  individual  or 
institution.  In  most  cases  the  criticisms  apply  to  numerous  in- 
stitutions or  to  the  situation  as  a  whole.  In  very  few  instances 
have  persons  or  institutions  received  direct  adverse  mention. 
The  effort  has  been  always  to  make  the  statements  general  and 
impersonal.  Probably  it  is  wise  to  greatly  limit  adverse  state- 
ments, as  in  this  rapid  age  they  may  be  nullified  by  reforms  and 
proven  untrue  before  they  have  time  to  influence  the  progress  of 
events. 

In  closing  this  commentary  on  Pennsylvania  child-helping 
institutions,  the  writer  desires  to  say,  for  himself  and  for  the  De- 
partment, that  there  has  been  only  the  most  kindly  and  sympa- 
thetic feeling  for  all  classes  of  Pennsylvania  child-helping  agencies 
and  institutions,  both  in  the  field  work  and  in  the  still  more  arduous 
duty  of  arranging,  combining,  tabulating,  and  formulating  this 
report.  To  the  many  efficient  social  workers  and  officers  of  the 
various  organizations,  who  so  readily  and  sometimes  self-sacrific- 
ingly  aided  in  the  study,  sincere  and  appreciative  thanks  are 
tendered.     May  the  newest  and  best  ideals  and  methods  of  serv- 

297 


CHILD    WELFARE    WORK    IN    PENNSYLVANIA 

ice  spread  over  the  state  as  seed  from  the  hand  of  the  sower;  and 
may  the  richest  success  crown,  as  with  a  harvest,  the  efforts  of  all 
who  serve  humanity  through  the  child-helping  agencies  and  insti- 
tutions of  Pennsylvania. 


APPENDIX 


APPENDIX 
SAMPLES  OF  AGENCY   FORMS 

To  stimulate  the  keeping  of  adequate  records  of  children  in 
agencies  and  institutions,  facsimiles  of  a  few  sample  forms  are  here 
presented.  They  are  in  actual  use  by  agencies  in  Philadelphia, 
and  in  large  measure  are  also  applicable  to  child-caring  institu- 
tions. Those  reproduced  are  but  part  of  a  complete  set  needed 
to  properly  register  the  work  done.  Enough  are  here  given  to 
enable  other  agency  or  institution  officials  to  begin  a  good  system. 
They  must  be  considered  as  suggestions,  and  not  forms  to  be 
slavishly  followed,  for  most  of  them  would  probably  require  some 
modifications  to  fit  the  needs  of  other  organizations.* 

Form  Page 
No. 

1  Preliminary  Family  Study 302 

2  Report  of  Medical  Examiner 304 

3  Child's  Sheet 305 

4  Special  Historical  and  Psychological  Record       .      .      .  306 

5  Agent's  Report  on  Applicant  and  Home        ....  308 

6  Card  Record  of  Applicant  and  Home 310 

7  Card  Record  of  Child  and  Visitation 310 

8  Agent's  Report  of  Visit  to  a  Child 311 

*  It  is  hoped  that  many  agencies  and  institutions  will  avail  themselves  of  the 
information  given  in  a  recent  publication  of  the  Russell  Sage  Foundation  entitled 
Elements  of  Record  Keeping  for  Child-Helping  Organizations,  by  Georgia  G.  Ralph 
of  the  Department  of  Child-Helping. 


301 


CHILDREN'S  BUREAU.  PHILA.,  PA. 


No.. 


waor> 

CROSS  REFERENCE 

AT  HOME:        r                   M                  Su-^  F 

SIB.M            .     F<fe«l 

ca,«l                                            Md~dlcau.O 

F  dacttoJ                   M  docfnd 

ip«.«d                          D..o,c<d 

t'ouuinl  Modxi 

Oih.r 

2 
J 

A,. 

N.I   &  Race 

Rebco. 

R»j&  W..  1                 T.ad. 

1 

i 

1 

Wwpowk. 

06,U..-. 

ChJd.tn  l««ii  iSj  L.g.1 

A»i 

D.u  ol  B.r.h 

Chnocnod 

School  (C«d.)  o.  Occupaooo  .od  W.ir 

R»dcocc 

8 

9 

' 

10 

R„<J<o=e 

R«>i 

Rooo. 

S„bl.. 

Du. 

Ho».  ud  N=,hboHx«»i  Caxiau. 

16 

18 

19 

20 

C„.^„ 

^. 

Co.«,»u,».  A^ci« 

23 

24 

R.Ut..« 

OoiJOlllOO 

K„^p 

Add.- 

26 

27 
23 

29 
30 

31 

32 

3J 

1 

2 
3 

SUK 

U.«<dS<>» 

N.tmaliud 

Api>lkui 

ApplicAU 

aa« 

Du. 

Form  No.  i. — Preliminary  Family  Study 

To  be  made  when  aid  is  asked  for  children  or  family 

302 


The   Family  (Conchided) 


Ei«Jo,™ 

DMUioudu) 

Rd»««-Cfaw.  Pt>r.ia«..  Et 

CW.cuoi.tioc  bj  Numbo :  Moul  Dd«. 

PI„«aJ  CW«. 

H.b.B 

P.^u.  R«d<n« 

D.tt 

D... 

Due 

D.u: 

Form  No.  i. — Preliminary  Family  Study  {Concluded) 
Important  information  relative  to  identity  and  conditions 


303 


JOINT  SHELTER  FOR  CHILDREN 

REPORT  OF  MEDICAL  EXAMINER 


Name..._ 

Age_ 


Nationality  )  Father. 


Sex _ „.. 

or  Race 

(Mother 

FAMILY  HISTORY 

(Metlical) 

GOOD  Health 

Invalidism 

Particularly  insanity,  tuberculosis 
cancer,  tumors,  deformities 

DEAD 

Particularly  in 

(Cause) 

anity,  tuberculosis 
ors.  .leforn-ities 

Father 

Mother 

Sisters 

Brothers 

.Over  crowding.. 


.Neglect.. 


..Drunkenness Cruelty 


Character  of  companions _.. 

Nose..„ „ 


Masturbation 


FAMILY   HISTORY  (Social) 

Poverty Illiteracy 

PERSONAL  HISTORY  (Social) 

Environmen  t „ H  abi  ts 

HABITS.     Breathing:  Through  mouth _ 

Snore _ _ _ „  Enuresis.. 

PREVIOUS  MEDICAL  HISTORY. 

Vaccination _„ JV\easles Scarlet  Fever Diptheria Chicken  Pox 

Mumps Erysipelas. Rheumatism._...„ __._ Small  Pox Pneumonia 

Whooping  Cough .._ „.. Typhoid.... Malaria 

PHYSICAL  EXAMINATION 
General  Development  .   .   . 

Nutrition ... 

Height 

Weight 

Skin 

Eyes 

Ears  .    .  Otorrhea  .    .  Latent 
Nose 

(Teeth 
Tonsils 


Glands 


Chest 


(  Shape 


/  Girth  at  Nipple  line  .   .   . 

Heart ... 

Lungs  

Spine 

Extremities Deformities 

Genitalia . 

Hernia        


[Adenoids 


Remarks  and  Recommendations: 


Treatment  Given 


Form  No.  2. — Report  of  Medical  Examiner 

Examination  made  at  reception  of  child  by  society  or  institution 

304 


CHILDREN'S  BUREAU,  PHILA.,  PA. 
CHILD'S  Sheet 


OA) 

AcccTUdhoo 

T»». 

To  Ix  wd  bT 

D.I. 

■ 

Chu.a« 

D.<c  o(  Binh 

-R:W« 

Color 

RtiDovec)  froo. 

PUcx) 

Form  No.  3. — Child's  Sheet 

A  brief  record  filed  in  folder  for  general  reference 

305 


MENTAL  EXAMINATION 

RECORD  BLANK 

Name -  -       — -  -      -     '-    -  Parenti' Nativity  - 

Age - "• - - V -  "       Occupation  

Residence ■,•  ■ - Parents  can  speak  Elnglish ~ 

Can  speak  Elnglish - -  "       illiterate - 

Nativity — - - - — Poverty  (state  degree) - 

FAMILY  HISTORY  (Medical).     Insanity,  (eeble-mind,  nervous  disorder,  alcoholism,  tuberculosis,  other  diseases,  sickness  or 
accident  to  mother  before  or  during  labor 


FAMILY  HISTORY  (Social).     Poverty,  illiteracy,  overcrowding,  neglect,  drunkenness,  cruelty.. 


PERSONAL  HISTORY  (Social).     Elnvironment,  character  of  companions,  habits  (incorrigibility,  truancy,  veracity  and  vice) 


PERSONAL  HISTORY  (Medical).     Acadenb  at  birth,  injunes  to  head,  acute  Jlness  (particularly  scarlet  fever  and  d.phtheria), 
convulsions,  previous  poor  nutrition 


DISEASES  OR  PHYSICAL  DEFECTS  ALREADY  NOTED 
SCHOOL  HISTORY.    City  (name  school)  country. 


STATEMENT  OF  TEACHER  (        )  PARENT  (        )  OR  GUARDIAN  (        ) 

MENTALITY.     Fair,  common  sense  and  intelligence  outside  of  school? 

Apathetic?  Restless?  Good-natured  and  affectionate? Timid? Willing  and  tries?     ..,.,.... 

Obstinate?      Mischievous  and  quarrelsome? Truthful? - Moral? 

Marked  peculiar  traits  associated,  etc .^ ^ 

SCHOOL  WORK:     Child's  age Present  grade Time  in  present  grade  Time  « 

preceding  grade Prospects  of    promotion - - ^. 

School  attendance ~ - ■■— _ 

REMARKS: - - 


Arithmetic - Spelling — Reading - Writing - 

Copying - Attention ~ - , Memory 

Teacher's  idea  of  cause  of  defect - 


lOVER] 


Form  No.  4. — Special  Historical  and  Psychological  Record 

Detailed  study  of  child  while  under  observation  in  receiving  home 

306 


MENTAL  EXAMINATION-Continued. 

THIS  SIDE  TO  BE  FILLED  IN  BY  MEDICAL  EXAMINER 
PHYSICAL  EXAMINATION 

Eye  sight ;.- Enlarged  tonsils 

Hearing -. _„ Nasal  Obstruction    .- 

Nutrition - ^ ,  Nervous    <.... 

Size  for  age — .-  Miscellaneous - - 

Physical  peculiarities  - ....  - 


MENTAL  EXAMINATION 

SPEECH -. - FACIAL  EXPRESSION 

Underline  correct  answers;  aoss  out  incorrect  answers. 

MEMORY:     Does  the  child  know  his  age  or  her  age? Bijthday? - - Father's  name?  

Address? Business?  -    Brotliers  and  sisters  (Their  number? ,-.■)     (Their 

Names? )     Other  intelligent  information?      : 


SPELLING :  cat,  man,  dog,  see,  can,  book,  foot,  mch,  dock,  house,  picture,  Europe,  America,  spring,  summer,  garden,  flowers, 

enough.     Answers  how  given? — 

PERCEPT        Size  (long short big little ) 

PLUS  Form  (round  Gat square   thin thick ) 

VERBAL         Object   (pencil knife book key... iiandkerchief envelope ) 

RECOGNITION:    Color  (red yellow green blue white black ) 

READING:     Recognizes  letters?      -         Very  easy  words? Six-letter  words? 

NUMBER  WORK:     Correctly  calculated         +.      +       .-.-,X.X.-^.-^. 
Inconectly  calculated         +.      +       .      —       .—       ,X,X,-i-,-4-, 

Answers  how  given  — 

RECOGNIZES  COINS  (cents  value  here  noted) - 

Change  computed , ., 

JUDGEMENT   OR    REASON 

CAUSES  OF  DEFECT: - _. 


RECOMMENDATIONS: 
Medical  


Social  and  Educational 


WALTER  S.  CORNELL  M.  D. 

FoR.M  No.  4.— SpEcr.vL  Historical  .-vnd  Psychological  Record  (Concluded) 

Organic  and  sensory  tests  to  ascertain  mental  status 

307 


PENNSYLVANIA  CHILDREN'S  AID  SOCIETY. 

419-421  SOUTH  FIFTEENTH  STREET.  PHILADELPHIA,  PA. 

AGENT'S  REPORT  ON  APPLICANT  AND  HOME. 

CONFIDENTIAL 

Husband's  First.  Wife's  First. 

P  6."  '  Counly.  State. 

Application  for  ^°'i      S|Jf,,   age ^^^'       ^'°'"T.J^":°r'!^°.    for  ^^-^-^   home 

Husband's  age Nationality Occupation 

Salary,  if  any,  $ ^ What  education  has  he? Is  he  intelligent? 

Does  he  speak  English? Is  hp  trustworthy  ? Is  he  frugal? 

Has  he  a  good  moral  character  ? * 

Is  he  industrious? Is  he  kind  and  gentlemanly  in  his  family? 

, Is  he  kind  to  his  stock? Is  he  just  and 

considerate  to  his  employees  ? 

Is  he  of  a  kind  and  happy  disposition? 

Is  he  generous  and  Uberal  minded? -. Does  he  control  his 

temper? I*  he  a  member  of  any  church? 

If  so,  what  church? Does  he  attend 

regularly  and  does  he  Uke  an  active  part  in  the  church  work? 

Has  he  been  previously  married?  if  so,  did  his  first  wife  or  wives  die ? 

Was  he  ever  divorced?  if  so,  when,  where  and  by  whom  was  the  divorce  procured,  by  himself  or  his  wife?, 

Does  he  use  intoxicating  liquors?  if  so,  to  what  extent? 


.Is  he  and  has  he  been 


Does  he  use  profane  or  vile  language? 

_ Is  he  neat  in  his  personal  appearance? i 

Does  he  pay  his  bills  promptly? ,«, 

prosperous  in  his  business  ? 

How  many  children  have  been  bom  to  the  family? How  many  are  Uving? 

How  many  are  Uving  at  home? Do  you  consider  that  he  wUl  be  a  good  foster 

parent  and  wiU  a  child  under  his  influence  be  likely  to  become  a  good  citizen  ? 

Form  No.  5. — Agent's  Report  on  Applicant  and  Home 

A  printed  application  form,  filled  out  by  applicant,  is  understood  to  precede  agent's 

study;  but  because  of  space  limitation  it  is  here  omitted 

308 


WIfe'i  age Nationality What  education  haa  she? .^ 

I>  she  a  woman  of  good  moral  character  ? 

fs  she  intelligent? Does  she  speak  English? 

What  is  her  disposition  ? Is  she  inclined  to  be  fault- 
finding ? Does  she  control  her  temper  ? 

Is  she  neat  and  orderly? 

Is  she  too  neat  and  orderly  for  the  comfort  of  her  child  ? 

Does  she  seem  to  be  painstaking  in  her  work? If  she  i$ 

the  support  of  the  family,  what  is  her  occupation  ? 

Income,  $ Has  she  property  in  her  own  right? .   

Is  she  a  member  of  any  church  ?  if  so,  what  church  ? 

Does  she  attend  with  reasonable  regularity  and  take  any  active  part  in  the  church  work  ? 

Do  she  and  her  husband  live 

h.ipnilv  toqi-iher? Is  this  her  first  husband? 

Was  ^he  ever  divorced?  if  so,  when,  where,  and  by  whom  was  the  divorce  procured,  by  herself  or  her  husband? 

Do  you  consider  that  she  will  be  a  good  foster  parent  ? 

What  reputation  does  the  family  bear  in  the  neighborhood  ? 

The  Home— Do  they  own  the  home,  or  other  property? If  so,  value,  $ 

Is  it  mortgaged? tf  so.  amount,  S No.  of  acres 

in  farm  or  premises? ..    .    .      No.  of  rooms  in  house? 

C6ndition  of  the  house  as  to: — Cleanliness? Order? Comfort?... 

Appearance  of  house,  bam,  yard,  etc 


Where  would  the  child  sleep  ? 

What  newspapers  taken  ? 

Character  of  books? Pictures,  etc 

Give  general  impressions  and  recommendations 


DaU  oj  Investigation 191 . . 

(Signed). 


Agent,  Children's  Aid  Society  of  Pennsylvania 

F0R.M  No.  5. — Agent's  Report  on  Applicant  and  Home  (Concluded) 
A  personal  visit  to  and  study  of  home  should  always  precede  the  placing-out  of  any  child 

309 


Applicant's  Name  in  Full 


Nearest  R.  R.  Station 


Distance  and  Direction  from  R.  R.  Station 


Board 

Child's  Name  in  Full 

Placed 

Returned 

Free 

Boy 

Girl 

White 

Colored 

Protestant 

Catholic 

Jewish 

Date 

References  Completed 

Approved  by 

Date 

Date 

Inspected  by 

Rejected  by 

Date 

PENN3VXVANIA  CHILDREN'S 

a;d  sociExy,  Philadelphia 

Form  No.  6. — Card  Record  of  Applicant  and  Hoivie 
To  show  at  a  glance  who,  when,  where,  what  child  assigned  to  it,  etc. 


Child's  Name  m  Full 


Name  of  Caretaker 

Dis.  and  Dir.  R.  R.  S. 

Placed 

Removed 

R.  R.  Station 

Post  Office 

County 

State 

Railroad 

Erpress  Co. 

Name  of  Caretaker 

DU.  and  Dir.  R.  R,  S. 

Placed 

Removed 

R.  R.  Station 

Post  Office 

County 

Sute 

Railroad 

Eipress  Co. 

Name  of  Caretaker 

Dis.  and  Dir.  R.  R.  S. 

Placed 

Removed 

R.  R,  Station 

Post  Office 

County 

State 

Railroad 

Erpress  Co. 

Name  of  Caretaker 

Dis.  and  Dir.  R.  R.  S. 

Placed 

Removed 

R.  R.  Station 

Post  Office 

County 

State 

Railroad 

Express  Co. 

Name  of  Caretaker 

Dis.  and  Dir.  R.  R.  S. 

Placed 

Removed 

R.  R.  Station 

Post  Office 

County 

State 

Railroad 

Express  Co. 

Date          Received  from 

Date          P£ 

ssed  from  Care  by 

Jewish 


pennsylvania  children's  aid  society,  philadelphia 

Form  No.  7.— Card  Record  of  Child  and  Visitation 

Children  on  board  or  in  free  homes.     This  is  reverse  of  card.     On  face  are  name  of 

child,  location,  name  of  visitor,  and  dates  of  visits 

310 


CHILDREN'S  AID   SOCIETY  o..orv.. 

OF   PENNSYLVANIA 

REPORT  OF  VISIT  TO  A  CHILD 


Wilb  whom  placed 


N«me  of  Dearest  and  most  convenieDl  R.  R.  a 


Dis.  and  dir.  of  home  from  this  siatioa 


Does  child  sleep  alooe  In  separate  room  7 


Is  the  child  happy? 


Was  child  seen  alone? 


L  does  child  do? 


Any  bad  habits? 


Condition  of  the  home  s 


order  and  comfort  ? 


Appearance  of  house,  bam,  yard,  « 


What  newspapers  taken  ? 


1  between  child  and  foster  parents  affectionate  : 


Has  the  child  been  visited  by  parents,  r 


Is  the  home  adapted  to  the  child? 


Are  foster  pareuts  pleased  ^ 


I  %  child  boarding,  free  or  receiving  wages  ? 


» legally  adopt  child? 


Any  new  impressions  as  to  f 


What  suggestions,  if  i 


;  made  to  the  foster  parents  ? 


Have  you  any  recommendations  to  the  Society? 


Form  No.  8. — Agent's  Report  of  Visit  to  a  Child 
To  such  details  of  child's  condition  should  be  added  *'stories"  of  any  illnesses, 
school  progress,  church  relations,  etc. 


ALPHABETICAL  LIST  OF  AGENCIES 
AND  INSTITUTIONS 


ALPHABETICAL   LIST  OF  AGENCIES  AND 
INSTITUTIONS 

Explanation 

1.  The  first  reference  is  the  number  of  the  table  in  which  the 
agency  or  institution  is  located;  the  second  is  the  page  of  the  book 
where  that  table,  or  the  first  section  of  its  set  appears. 

2.  In  order  to  save  space,  only  a  portion  of  the  agencies  and 
institutions  for  which  information  is  given  in  the  general  tables 
are  mentioned  in  the  text  of  the  report. 

3.  Information  concerning  a  given  agency  or  institution 
which  is  mentioned  in  the  text  appears  in  the  chapter  immediately 
preceding  the  table  in  which  the  agency  or  institution  is  included. 


o" !  Name  of  agency  or  institution 


City  or  town 


County 


-\llegheny  County  Children's 
Aid  Society     .... 

■Mlegheny  institute  (Avery 
College) 

Mlegheny  Widows'  Home  As- 
sociation      

\merican  Salvation  .A.rmy 
Children's  Home  . 

\merican  Salvation  Army 
Temporary  Home 

\rmstrong  County  Children's 
Aid  Society      .... 

\uburn  and  Rush  Poor  Asy- 


Baptist  Orphanage   . 

Baptist  Orphanage  of  Western 

Pennsylvania 
Beacon  Light  Mission    . 
Beaver  County  Children's  Aid 

Society 

Beaver     County     Children's 

Home 

Berks  County  Humane  Soci 

ety 


Pittsburgh 

Pittsburgh 

Pittsburgh 

Allentown 

Erie 

Kittanning 

Auburn 

Philadelphia 

West  Newton 
Custer  City 

Beaver 

New  Brighton 

Reading 


Allegheny 

Allegheny 

Allegheny 

Lehigh 

Erie 

Armstrong 

Susquehanna 

Philadelphia 

Westmoreland 
McKean 

Beaver 

Beaver 

Berks 


142 
190 
156 
209 
209 
142 
65 

182 

182 
174 

142 
76 
148 


CHILD   WELFARE    WORK    IN    PENNSYLVANIA 


d 

Name  of  agency  or  institution 

City  or  town 

County 

15 

& 

Z 

(- 

a. 

•4 

Bethany  Orphans'  Home    . 

Philadelphia 

Philadelphia 

14 

174 

15 

Bethany  Orphans'  Home    . 

Womelsdorf 

Berks 

18 

209 

16 

Bethesda  Children's  Christian 

I"*! 

Home 

Philadelphia 

Philadelphia 

14 

•74 

•7 

Bethesda  Home  .... 

Pittsburgh 

Allegheny 

»9 

218 

18 

Beulah  Anchorage  Home    . 

Reading 

Berks 

16 

190 

'9 

Blair  County  Industrial  Train- 

ing Home         .... 

Williamsburg 

Blair 

3 

76 

20 

Blakely  Poorhouse   .     .     . 

Blakely 

Lackawanna 

I 

62 

21 

Bloom  Poorhouse 

Bloomsburg 

Columbia 

I 

61 

22 

B'nai  Brith  Orphanage 

Erie 

Erie 

15 

182 

23 

Borough  Poorhouse        .      . 

Milton 

Northumberland 

I 

64 

24 

Boys'  Industrial  Home 

Williamsport 

Lycoming 

16 

190 

25 

Boys'     Industrial     Home     of 

Western  Pennsylvania     . 

Oakdale 

Allegheny 

16 

190 

26 

Bradley  Children's  Home  . 

Pittsburgh 

Allegheny 

'5 

182 

27 

Bucks  County  Children's  Aid 

Society 

Doylestown 

Bucks 

9 

•35 

28 

Burd  Industrial  School 

Bedminster 

Bucks 

16 

190 

29 

Burd  Orphan  Asylum 

Philadelphia 

Philadelphia 

18 

209 

30 

Bureau  for  Jewish  Children 

Philadelphia 

Philadelphia 

12 

156 

31 

Butler  County  Children's  Aid 

Society 

Butler 

Butler 

10 

142 

32 

C 

Cameron    County    Children's 

Aid  Society      .... 

Emporium 

Cameron 

10 

142 

33 

Carbondale  Poorhouse 

Greenfield 

Lackawanna 

I 

63 

34 

Catholic  Boys'  Home     .      . 

Harbour  Creek 

Erie 

15 

182 

35 

Catholic  Home  for   Destitute 

Children 

Philadelphia 

Philadelphia 

17 

202 

36 

Center  County  Almshouse 

Bellefonte 

Center 

I 

61 

37 

Center  County  Children's  Aid 

Society 

Bellefonte 

Center 

10 

142 

38 

Central  Poorhouse    .      .      . 

Wilkes- Barre 

Luzerne 

I 

63 

39 

Centralia     and     Conyngham 

Poorhouse  

Centralia 

Columbia 

I 

61 

40 

Chester     County     Children's 

Aid  Society      .... 

Westchester 

Chester 

9 

135 

41 

Children's     Aid     Society     of 

Pennsylvania         .      .      . 

Philadelphia 

Philadelphia 

8 

129 

42 

Children's     Aid     Society     of 

Western  Pennsylvania     . 

Pittsburgh 

Allegheny' 

8 

129 

43 

Children's  Bureau    .      .      . 

Philadelphia 

Philadelphia 

12 

156 

44 

Children's     Home    of    South 

Bethlehem        .... 

South  Bethlehem 

Northampton 

16 

190 

45 

Children's  Home  of  York   . 

York 

York 

16 

190 

46 

Children's    Home    Society    of 

Pennsylvania        .      . 

Pittsburgh 

Allegheny 

8 

129 

47 

Children's  House  of  the  Home 

for  Incurables        .      .      . 

Philadelphia 

Philadelphia 

6 

no 

48 

Children's  Industrial  Home 

Harrisburg 

Dauphin 

16 

190 

316 


LIST    OF    AGENCIES    AND    INSTITUTIONS 


d 
Z 

Name  of  agency  or  institution 

City  or  town 

County 

^ 

£ 

49 

Child  Welfare  Association  of 

Allegheny  County 

Pittsburgh 

Allegheny 

12 

136 

50 

Christian  Home  .... 

Johnstown 

Cambria 

16 

190 

$1 

Christ's    Home   for   Homeless 

and  Destitute  Children   . 

Warminster 

Bucks 

>4 

174 

52 

Christ's   Methodist   Episcopal 

Home  for  Babies  .      . 

Pittsburgh 

Allegheny 

13 

182 

53 

Church  Home  and  Orphanage 

Jonestown 

Lebanon 

18 

209 

54 

Church  Home  for  Children  . 

Philadelphia 

Philadelphia 

18 

209 

55 

City  Home  (Almshouse)      . 

New  Castle 

Lawrence 

I 

63 

56 

City  Poorhouse         .      .      . 

Williamsport 

Lycoming 

I 

63 

57 

Clarion  County  Children's  Aid 

Society 

Clarion 

Clarion 

10 

142 

58 

Clearfield   County   Children's 

.Aid  Society      .... 

Clearfield 

Clearfield 

10 

142 

59 

Clinton     County     Children's 

Aid  Society      .... 

Lockhaven 

Clinton 

10 

142 

60 

Coal  Township  Poorhouse  . 

Shamokin 

Northumberland 

I 

64 

61 

Coleman  Industrial  Home  for 

Colored  Boys  .... 

Pittsburgh 

Allegheny 

14 

•74 

62 

Colored  Women's  Relief  Asso- 

ciation Home  .... 

Pittsburgh 

Allegheny 

16 

190 

63 

Commonwealth  Humane  Soci- 

ety   

Bradford 

Bradford 

1 1 

148 

64 

Corry  Humane  Society 

Corry 

Erie 

1 1 

148 

65 

County  Almshouse  .      .      . 

Beaver 

Beaver 

60 

66 

County  Almshouse   .      .      . 

Bedford 

Bedford 

60 

67 

County  Almshouse  .      .      . 

Burlington 

Bradford 

61 

68 

County  Almshouse  .      .      . 

Butler 

Butler 

61 

69 

County  Almshouse  .      .      . 

Carlisle 

Cumberland 

61 

70 

County  Almshouse  . 

Chambersburg 

Franklin 

62 

71 

County  Almshouse  .      .      . 

Clarion 

Clarion 

61 

72 

County  Almshouse  .      .      . 

Coudersport 

Potter 

^4 

73 

County  Almshouse  .      .      . 

Doylestown 

Bucks 

61 

74 

County  Almshouse   .      .      . 

Embreeville 

Chester 

61 

73 

County  Almshouse   .      .      . 

Erie 

Erie 

62 

76 

County  Almshouse   .      .      . 

Gettysburg 

Adams 

60 

77 

County  Almshouse  .      . 

Harrisburg 

Dauphin 

61 

78 

County  Almshouse   .      .      . 

Hollidaysburg 

Blair 

60 

79 

County  Almshouse   .      .      . 

Lancaster 

Lancaster 

63 

80 

County  Almshouse  .      .      . 

Lebanon 

Lebanon 

P 

81 

County  Almshouse   .      .      . 

Lewistown 

Mifflin 

^^ 

82 

County  Almshouse   .      .      . 

Loysville 

Perry 

64 

83 

County  Almshouse   .      .      . 

Mercer 

Mercer 

^^ 

84 

County  Almshouse   .      .      . 

Nazareth 

Northampton 

63 

83 

County  Almshouse  .     .     . 

Pottsville 

Schuylkill 

64 

86 

County  Almshouse   .      .      . 

Royersford 

Montgomery 

63 

87 

County  Almshouse  .      .      . 

Saegerstown 

Crawford 

6i 

88 

County  Almshouse  .      .      . 

St.  Mary's 

Elk 

62 

89 

County  Almshouse   .      .      . 

Shillington 

Berks 

60 

90 

County  Almshouse  .      .      . 

Smethport 

McKean 

^5 

9' 

County  .Almshouse   .      .      . 

Somerset 

Somerset 

65 

317 


CHILD   WELFARE    WORK    IN    PENNSYLVANIA 


o 
2 

Name  of  agency  or  institution 

City  or  town 

County 

1 

g: 

County  Almshouse   .      .      . 

Tionesta 

Forest 

62 

93 

County  Almshouse   . 

Uniontown 

Fayette 

62 

9A 

County  Almshouse  . 

Washington 

Washington 

65 

95 

County  Almshouse   . 

Waynesburg 

Greene 

62 

9e 

County  Almshouse   . 

Wecosville 

Lehigh 

63 

97 

County  Almshouse   . 

York 

York 

65 

95 

County  Home  (Almshouse) 

Brookville 

Jefferson 

62 

99 

County  Home  (Almshouse) 

Clearfield 

Clearfield 

61 

IOC 

County  Home  (Almshouse) 

Ebensburg 

Cambria 

61 

lOI 

County  Home  (Almshouse) 

Greensburg 

Westmoreland 

65 

102 

County  Home  (Almshouse) 

Indiana 

Indiana 

62 

103 

County  Home  (Almshouse) 

Lima 

Delaware 

62 

1 04 

County  Home  (Almshouse) 

Sherleysburg 

Huntingdon 

62 

105 

County  Home  (Almshouse) 

Woodville 

Allegheny 

60 

106 

County  Poorhouse    .      .      . 

Sugar  Creek 

Venango 

65 

107 

County  Poorhouse    .      .      . 

Wellsboro 

Tioga 

65 

108 

Crawford    County   Children's 

Aid  Society      .... 

Titusville 

Crawford 

142 

109 

Curtis  Home  for  Women  and 

Children 

Pittsburgh 

Allegheny 

19 

218 

no 

D 

Danville  and  Mahoning  Poor- 

house     

Danville 

.Montour 

, 

63 

ill 

Dauphin    County    Children's 

Aid  Society      .... 

Harrisburg 

Dauphin 

9 

•35 

112 

Day  Nursery  and  Children's 

Home 

Allentown 

Lehigh 

18 

209 

113 

Delaware   County   Children's 

Aid  Society      .... 

Media 

Delaware 

9 

135 

114 

Detention  Farm  House 

Somerset 

Somerset 

2 

69 

•15 

Detention  Home 

Erie 

Erie 

2 

69 

116 

Detention  Home       .      .      . 

Scranton 

Lackawanna 

2 

69 

117 

Detention  Home       .      .      . 

Washington 

Washington 

2 

69 

118 

Detention  Room       .      .      . 

lohnstown 

Cambria 

2 

69 

119 

Detention  Rooms     .      .      . 

^arrisburg 

Dauphin 

2 

69 

120 

Downingtown   Industrial  and 

Agricultural  School    .      . 

Downingtown 

Chester 

16 

190 

121 

Drexmor  Home         .      .      . 

Philadelphia 

Philadelphia 

'7 

202 

122 

E 
Eastbrook  Home  for  Destitute 

Negro  Children     .      .      . 

Eastbrook 

Lawrence 

•4 

•74 

123 

Eastern    Pennsylvania    Insti- 

tution for  Feeble-Minded 

Spring  City 

Chester 

5 

lOI 

124 

East  Stroudsburg  Poorhouse 

last  Stroudsburg 

Monroe 

63 

125 

Elk    County    Children's    Aid 

Society 

Ridgeway 

Elk 

10 

142 

126 

Elkins  Masonic  Orphanage  for 

Girls Philadelphia 

Philadelphia              16  1 
Erie                              4  j 

190 
9^ 

127 

Elmwood  Home        .      .      .      No.  Springfield 

318 


LIST    OF    AGENCIES    AND    INSTITUTIONS 


d 

z 

Name  of  agency  or  institution 

Citv  or  town 

County 

128 

Emmaus  Orphan  House      .       Middletown 

Dauphin 

16 

190 

129 

Episcopal  Church  Home     .      Pittsburgh 

Allegheny 

18 

209 

130 

Evangelical     Lutheran     Con- 

cordia Home    .... 

Vlarwood 

Butler 

18 

209 

>3' 

F 
-^airfax  Baby  Home 

Pittsburgh 

Allegheny 

•4 

•74 

132 

Fayette     County     Children's 

Aid  Society      .... 

Jniontown 

Fayette 

10 

142 

•33 

First     Allegheny    Temporary 

16 

Home 

Pittsburgh 

Allegheny 

190 

'34 

Florence  Crittenton  Home 

hlarrisburg 

Dauphin 

19 

218 

135 

Florence  Crittenton  Home 

Philadelphia 

Philadelphia 

19 

218 

136 

Florence  Crittenton  Home 

Pittsburgh 

Mlegheny 

'9 

218 

137 

138 

Florence  Crittenton  Home 

Erie 

Erie 

•9 

218 

Florence  Crittenton  Mission 

Scranton 

Lackawanna 

■9 

218 

•39 

Florence  Crittenton  Mission 

Williamsport 

Lycoming 

>9 

218 

140 

Florence    Crittenton    Shelter 

and  Nursery    .... 

Wilkes-Barre 

Luzerne 

19 

218 

141 

Foster  Home 

Philadelphia 

Philadelphia 

16 

190 

142 

Fouike  and  Long  Institute  for 

Girls 

Langhorne 

Bucks 

16 

190 

•  43 

Franklin    County    Children's 

Aid  Society      .... 

Chambersburg 

Franklin 

9 

135 

•44 

Friends'  Home  for  Children 

Philadelphia 

Philadelphia 

18 

209 

•45 

G 
George    Junior    Republic    of 

Western  Pennsylvania     . 

Grove  City 

Mercer 

4 

9^ 

146 

German     Protestant    Orphan 

Asylum             .... 

West  Liberty 

Allegheny 

18 

209 

'47 

Germantown  Poorhouse 

Philadelphia 

Philadelphia 

I 

64 

148 

Girard  College     .... 

Philadelphia 

Philadelphia 

16 

190 

149 

Girls'  Industrial  School.      . 

Indiana 

Indiana 

14 

•74 

150 

Girls'  Training  Home    . 

Williamsport 

Lycoming 

14 

•74 

•5' 

Glen     Mills     Schools— Boys' 

Department     .... 

Glen  Mills 

Delaware 

4 

9^ 

152 

Glen      Mills     Schools— Girls' 

Department     .... 

Darling 

Delaware 

4 

9' 

153 

Goldy   Home   Society   of   Ly- 

coming County     . 

Williamsport 

Lycoming 

14 

'.]t 

i'JA 

Good  Shepherd  Home    . 

Allentown 

Lehigh 

■9 

•5' 

Gonzaga  Memorial  Home   . 

Philadelphia 

Philadelphia 

•7 

202 

•5( 

Grace  Aguilar  Home 

Philadelphia 

Philadelphia 

15 

182 

T 

Greene  County  Children's  Aid 

Society 

Waynesburg 

Greene 

10 

142 

•5' 

Greene    County    Children's 

f 

Home 

Waynesburg 

Greene 

3 

'  5' 

)  Gusky  Orphanage  and  Homt 

Pittsburgh 

Allegheny 

15 

182 

16 

H 

3  Haddock  Memorial  Home  fo 

r 

Babies 

Philadelphia 

Philadelphia 

\j 

182 

319 


CHILD   WELFARE    WORK    IN    PENNSYLVANIA 


d 

Name  of  agency  or  institution 

City  or  town 

County 

1 

i6i 

Hebrew  Orphans'  Home      . 

Philadelphia 

Philadelphia 

18 

209 

162 

Hebrew  Sheltering  Home    . 

Philadelphia 

Philadelphia 

18 

209 

163 

Hershey  Industrial  School  . 

Hershey 

Dauphin 

14 

174 

164 

Hillside  Home  (Almshouse) 

Clark's  Summit 

Lackawanna 

62 

165 

Hoffman  Orphanage      .      . 

Littlestown 

Adams 

15 

182 

166 

Holy  Family  Children's  Home 

New  Castle 

Lawrence 

16 

190 

167 

Holy    Family    Polish   Orphan 

Asylum 

Pittsburgh 

Allegheny 

17 

202 

168 

Holy  Provident  House  . 

Cornwells 

Bucks 

17 

202 

169 

Home  for  Colored  Children 

Pittsburgh 

Allegheny 

16 

190 

170 

Home  for   Destitute  Colored 

Children 

Philadelphia 

Philadelphia 

16 

190 

171 

Home  for  Friendless  Children 

Easton 

Northampton 

16 

190 

172 

Home  for  Friendless  Children 

Lancaster 

Lancaster 

16 

190 

173 

Home  for  Friendless  Children 

Reading 

Berks 

16 

190 

174 

Home  for  Friendless  Children 

Wilkes-Barre 

Luzerne 

16 

190 

•75 

Home  for  the  Friendless      . 

Erie 

Erie 

16 

190 

176 

Home  for  the  Friendless      . 

Harrisburg 

Dauphin 

16 

190 

177 

Home  for  the  Friendless      . 

Pittsburgh 

Allegheny 

16 

190 

178 

Home  for  the  Friendless 

Scranton 

Lackawanna 

16 

190 

Home  for  the  Friendless      . 

Williamsport 

Lycoming 

16 

190 

180 

Home  for  the  Homeless 

Philadelphia 

Philadelphia 

14 

174 

181 

Home    for    Orphans    of   Odd 

Fellows 

Philadelphia 

Philadelphia 

16 

190 

182 

Home    for    Orphans    of    Odd 

Fellows 

Pittsburgh 

Allegheny 

16 

190 

183 

Home   Missionary   Society  of 

Philadelphia    .... 

Philadelphia 

Philadelphia 

8 

129 

184 

Home  of  Association  for  Col- 

ored Women    .... 

Philadelphia 

Philadelphia 

19 

218 

185 

Home  of  the  Good  Shepherd 

Rosemont 

Delaware 

18 

209 

186 

Home  of  the  Merciful  Saviour 

for  Crippled  Children 

Philadelphia 

Philadelphia 

6 

no 

187 

Home  of  the  United  Charities 

Hazleton 

Luzerne 

19 

218 

188 

Honesdale  Poorhouse     . 

Honesdale 

Wayne 

65 

189 

House  of  Detention 

Philadelphia 

Philadelphia 

2 

69 

190 

House  of  Detention        .      . 

Norristown 

Montgomery 

2 

69 

191 

House  of  Industry    . 

Philadelphia 

Philadelphia 

16 

190 

192 

House  of  St.  Michael  and  All 

Angels 

Philadelphia 

Philadelphia 

6 

1 10 

193 

House  of  the  Good  Shepherd 

Philadelphia 

Philadelphia 

19 

218 

194 

House  of  the  Good  Shepherd 

Pittsburgh 

(Allegheny) 

Allegheny 

19 

218 

195 

House  of  the  Good  Shepherd 

Pittsburgh 

Allegheny 

19 

218 

196 

House  of  the  Good  Shepherd 

Reading 

Berks 

19 

218 

197 

House  of  the  Good  Shepherd 

Scranton 

Lackawanna 

19 

218 

198 

House  of  the  Holy  Child     . 

Philadelphia 

Philadelphia 

18 

209 

199 

Howard  Institution        .      . 

Philadelphia 

Philadelphia- 

16 

190 

20c 

Humane    Association    and 

United  Charities  . 

Wilkes-Barre 

Luzerne 

1 1 

148 

201 

Humane  Society  and  Associ- 

ated Charities       .      . 

Scranton 

Lackawanna 

1 1 

148 

320 


LIST   OF    AGENCIES    AND    INSTITUTIONS 


d 
Z 

Name  of  agency  or  institution 

City  or  town 

County 

Xi 

bO 

H 

£. 

202 

I 
ImprovementChildren'sHome 

Pittsburgh 

Allegheny 

16 

190 

203 

Indiana     County     Children's 

Aid  Society      .... 

Indiana 

Indiana 

10 

142 

204 

Industrial  Home  for  Crippled 

Children 

Jefferson    County    Children's 

Pittsburgh 

Allegheny 

6 

no 

205 

Aid  Society      .... 

Brookville 

Jefferson 

10 

142 

206 

Jewish  Foster  Home  and  Or- 

phan Asylum  .... 

Philadelphia 

Philadelphia 

18 

209 

207 

Joint  Shelter  for  Children   . 

Philadelphia 

Philadelphia 

16 

190 

208 

Juniata  Valley  Children's  Aid 

Society 

Huntingdon 

Huntingdon 

8 

129 

209 

Juvenile  .Aid  Society  (Jewish) 

K 

Kittanning  Poorhouse   . 

Philadelphia 

Philadelphia 

12 

.56 

210 

Kittanning 

Armstrong 

. 

60 

21  1 

L 

Lakeview  Poorhouse 

Clark's  Summit 

Lackawanna 

, 

63 

212 

Lawrence   County   Children's 

Aid  Society      .... 

New  Castle 

Lawrence 

10 

142 

213 

Lehigh  County  Children's  Aid 

Society 

Allentown 

Lehigh 

9 

13^ 

214 

Lehigh  County  Humane  Soci- 

ety   

.Mlentown 

Lehigh 
Philadelphia 

1 1 

t 

215 

Lincoln  Institution  .      .      . 

Philadelphia 

15 

216 

Lockhaven  Poorhouse    . 

Lockhaven 

Clinton 

61 

217 

Lutheran  Orphans'  Home  . 

Philadelphia 

Philadelphia 

18 

209 

218 

Lutheran  Orphans'  Home  . 

Topton 

Berks 

18 

209 

219 

Luzerne    County    Jewish    Or- 

phan Society    .... 

Wilkes- Barre 

Luzerne 

9 

'35 

220 

Lycoming  County  Children's 

Aid  Society      .... 

M 
McKean    County    Children's 

W'illiamsport 

Lycoming 

9 

135 

22  1 

Aid  Society      .... 

Bradford 

McKean 

10 

142 

222 

Madison  Poorhouse 

MadisonTownship 

Armstrong 

I 

60 

223 

.Madison  Poorhouse 

MadisonTownship 

Columbia 

I 

61 

224 

Magdalen  Society  of  Philadel- 

phia        

Philadelphia 

Philadelphia 

4 

9' 

225 

Manor  Township  Poorhouse 

Manorville 

Armstrong 

60 

226 

Meadville  Children's  Aid  Soci- 

ety and  Home 

Meadville 

Crawford 

'4 

'74 

227 

Mennonite    Children's    Home 

Association      .... 

Millersville 

Lancaster 

18 

209 

228 

Mennonite     Orphanage     and 

Home 

Center  Valley 

Lehigh 

15 

182 

229 

Mercer  County  Children's  Aid 

Society 

Mercer 

Mercer 

10 

142 

230 

Messiah  Home  Orphanage 

Harrisburg 

Dauphin 

16 

190 

321 


CHILD    WELFARE    WORK    IN    PENNSYLVANIA 


d 
Z 

Name  of  agency  or  institution 

City  or  town 

County 

15 

231 

Methodist  Episcopal  Orphan- 

age   

Philadelphia 

Philadelphia 

'5 

182 

232 

Middle  Coal  Field  Poorhouse 

Rockport 

Carbon 

I 

61 

233 

Midnight  Mission     . 

Philadelphia 

Philadelphia 

19 

218 

234 

Montgomery     County     Chil- 

dren's Aid  Society 

Norristown 

Montgomery 

9 

'^5 

235 

Montrose  Poor  Asylum. 

.Montrose 

Susquehanna 

' 

65 

236 

N 
National  Farm  School   . 

Farm  School 

Bucks 

18 

209 

237 

New  Milford  Poor  Asylum. 

New  Milford 

Susquehanna 

1 

65 

238 

Northern  Home  for  Friendless 

Children 

Philadelphia 

Philadelphia 

16 

190 

239 

North  Side  City  Home  (Alms- 

house)          

Warner 

Allegheny 

I 

60 

240 

North  Side  Temporary  Home 

Pittsburgh 

Allegheny 

18 

209 

241 

Northumberland  Poorhouse 

Northumberland 

Northumberland 

1 

64 

242 

Northwestern  Pennsylvania 

Humane  Society   .      . 

Erie 

Erie 

11 

148 

243 

Nursery  Home    .... 

Harrisburg 

Dauphin 

16 

190 

244 

0 
Oakland  Township  Poor  Asy- 

lum         

Susquehanna 

Susquehanna 

I 

65 

245 

Odd  Fellows'  Home  of  Central 

Pennsylvania 

Sunbury 

Northumberland 

16 

190 

246 

Odd  Fellows'  Home  of  Western 

Pennsylvania   .... 

.Meadville 

Crawford 

16 

190 

247 

Orange  Home      .... 

Hatboro 

Montgomery 

16 

190 

248 

Orphans'     Home    and     Farm 

School         

Zelienople 

Butler 

18 

209 

249 

Orphan    Society   of    Philadel- 

phia Home       .... 

Wallingford 

Delaware 

16 

190 

250 

Oxford  Poorhouse     .      .      . 

Holmesburg 

Philadelphia 

' 

64 

251 

P 

Paradise  Protectory.      .      . 

Abbottstown 

Adams 

>7 

202 

252 

Parker  Foundation         .      . 

Carlisle 

Cumberland 

14 

174 

253 

Passavant     Memorial     Home 

for  Epileptics  .... 

Rochester 

Beaver 

5 

lOI 

254 

Patriotic  Sons  of  America  Or- 

phanage       

Creasy 

Columbia 

16 

190 

255 

Pennsylvania  Industrial  School 

Eagleville 

Montgomery 

16 

190 

256 

Pennsylvania  Society  to  Pro- 

tect Children  from  Cruelty 

Philadelphia 

Philadelphia 

1 1 

148 

257 

Pennsylvania  Training  School 

Morganza 

Washington 

4 

91 

258 

Pennsylvania  Training  School 

for  Feeble-Minded  Children 

Elwyn 

Delaware 

5 

lOI 

259 

Philadelphia   Almshouse 

(Blockley)        .... 

Philadelphia 

Philadelphia 

I 

64 

260 

Philadelphia  Home  for  Infants 

Philadelphia 

Philadelphia 

16 

190 

261 

Philadelphia     Protectory    for 

Boys 

Protectory  Sta. 

Montgomery 

4 

91 

322 


LIST   OF    AGENCIES    AND    INSTITUTIONS 


d 
Z 

Name  of  agency  or  institution 

City  or  town 

County 

XI 

s 

262 

Pittsburgh  City  Farm  (Alms- 

house)          

Marshalsea 

Allegheny 

I 

60 

263 

Pittsburgh  Home  for  Babies 

Pittsburgh 

Allegheny 

>4 

'74 

264 

Pittsburgh  Home  for  Girls 

Pittsburgh 

Allegheny 

>4 

174 

265 

Pittsburgh  Newsboys'  Home 

Pittsburgh 

Allegheny 

16 

190 

266 

Pittsburgh      Sunshine     Chil- 

dren's Home    .... 

Pittsburgh 

Allegheny 

16 

190 

267 

Potter  County  Children's  Aid 

Society 

Galeton 

Potter 

10 

142 

268 

Pottsville     Benevolent     Asso- 

ciation   

Pottsville 

Schuylkill 

16 

190 

269 

Presbyterian     Orphanage     of 

Pennsylvania 

Philadelphia 

Philadelphia 

15 

182 

270 

Probation  Offices  and  Deten- 

tion Rooms      .... 

Pittsburgh 

Allegheny 

2 

69 

271 

Protestant  Home  for  Boys 

Pittsburgh 

Allegheny 

'4 

174 

272 

Protestant  Orphan  Asylum 

Pittsburgh 

Allegheny 

16 

190 

273 

Providence  Mission  and   Res- 

cue Home 

Pittsburgh 

.Allegheny 

19 

218 

274 

Pruner    Home   for    Friendless 

Children 

Bellefonte 

Center 

14 

174 

275 

R 

Ransom  Poorhouse  . 

Ransom 

Lackawanna 

, 

63 

276 

Roseiia  Foundling  Asylum 

Pittsburgh 

Allegheny 

'7 

202 

277 

Rosine  Association   . 

Philadelphia 

Philadelphia 

19 

218 

278 

Rouse  Hospital  (Almshouse) 

Warren 

Warren 

65 

279 

Roxboro  Poorhouse 

Roxboro 

Philadelphia 

' 

64 

280 

S 
St.  Catherine's   Orphan   Asy- 

lum for  Girls    .... 

Reading 

Berks 

n 

202 

281 

St.  Francis'  Industrial  School 

Eddington 

Bucks 

'7 

202 

282 

St.  John's  Lutheran  Home 

Mars 

Butler 

18 

209 

283 

St.  John's  Orphan  Asylum 

Cresson 

Cambria 

17 

202 

284 

St.  John's  Orphan  .Asylum 

Philadelphia 

Philadelphia 

17 

202 

285 

St.  Joseph's  Foundling  Home 

Scranton 

Lackawanna 

'7 

202 

286 

St.  Joseph's  House  for  Home- 

less Boys          .... 

Philadelphia 

Philadelphia 

17 

202 

287 

St.    Joseph's    Orphanage    for 

Girls 

Philadelphia 

Philadelphia 

17 

202 

288 

St.  Joseph's  Orphan  Asylum 

Erie 

Erie 

17 

202 

289 

St.  Joseph's  Orphan  Asylum 

Pittsburgh 

Allegheny 

'7 

202 

290 

St.    Joseph's    Protectory    for 

Boys 

Pittsburgh 

.Allegheny 

>7 

202 

291 

St.    Joseph's    Protectory    for 

Girls 

Norristown 

Montgomery 
Philadelphia 

4 
15 

91 

292 

St.  Martin's  College 

Philadelphia 

182 

293 

St.  Mary  Magdalen  de  Pazzi 

Orphanage 

Philadelphia 

Philadelphia 

15 

182 

294 

St.    Mary    Magdalen   Asylum 

for  Colored  Girls  . 

Philadelphia 

Philadelphia 

4 

9' 

323 


CHILD   WELFARE    WORK    IN    PENNSYLVANIA 


i 

Name  of  agency  or  institution 

City  or  town 

County 

295 

St.  Mary's  Orphan  Asylum 

Villa  Maria 

Lawrence 

17 

202 

296 

St.  Michael's  Orphan  Asylum 

Pittsburgh 

Allegheny 

17 

202 

297 

St.  Patrick's  Orphan  Asylum 

Scranton 

Lackawanna 

17 

202 

298 

St.  Paul's  Orphan  Asylum  . 

Idlewood 

.Mlegheny 

17 

202 

299 

St.  Paul's  Orphan  Asylum  for 

Boys 

Reading 

Berks 

17 

202 

300 

St.  Paul's  Orphans'  Home  . 

Greenville 

Mercer 

13 

182 

301 

St.    Peter's    Evangelical    Lu- 

theran Orphanage 

Pittsburgh 

Allegheny 

15 

182 

302 

St.  Vincent's  Home 

Philadelphia 

Philadelphia 

17 

202 

303 

St.  Vincent's  Home  and  Ma- 

ternity   

Philadelphia 

Philadelphia 

17 

202 

304 

St.  Vincent's  Orphan  Asylum 

(Tacony) 

Philadelphia 

Philadelphia 

17 

202 

305 

Salvation  Army  Rescue  Home 

Philadelphia 

Philadelphia 

18 

209 

306 

Salvation  Army  Rescue  Home 

Pittsburgh 

Allegheny 

18 

209 

307 

Seraphic     Work    of    Charity 

Home 

New  Derry 

Westmoreland 

17 

202 

308 

Seybert    Institution   for   Poor 

Boys  and  Girls 

Philadelphia 

Philadelphia 

14 

174 

309 

Sewickley  Fresh  Air  Home 

Sewickley 

Allegheny 

6 

1 10 

310 

Shelter  for  Colored  Orphans 

Philadelphia 

Philadelphia 

18 

209 

311 

Sheltering  Arms 

Philadelphia 

Philadelphia 

19 

218 

312 

Society  for  the  Care  of  Jewish 

Orphans      

Wilkes-Barre 

Luzerne 

12 

156 

3>3 

Somerset    County    Children's 

Aid  Society      .... 

Somerset 

Somerset 

10 

142 

314 

Soldiers'   Orphans'    Industrial 

School         

Scotland 

Franklin 

3 

76 

315 

Southern  Home  for  Destitute 

Children 

Philadelphia 

Philadelphia 

16 

190 

316 

Sunbury  Poorhouse 

Sunbury 

Northumberland 

I 

64 

3'7 

Sylvan  Heights  Home  for  Or- 

phan Girls       .... 

Harrisburg 

Dauphin 

17 

202 

318 

T 
Tabor  Home  for  Children   . 

Philadelphia 

Bucks 

18 

209 

319 

Thaddeus  Stevens    Industrial 

School  

Lancaster 

Lancaster 

14 

174 

320 

Thomson        (John        Edgar) 

School  for  Girls     .      .      . 

Philadelphia 

Philadelphia 

■4 

174 

321 

Thorn  Hill  School     .      .      . 

Warrendale 

Allegheny 

4 

91 

322 

Tressler  Orphans'  Home     . 

Loysville 

Perry 

18 

209 

323 

U 

United    Brethren    Orphanage 

and  Home        .... 

Quincy 

Franklin 

15 

182 

324 

United  Presbyterian  Orphans' 

Home 

Pittsburgh 

Allegheny 

18 

209 

325 

V 
Valley  Township  Poorhouse 

Danville 

Montour 

I 

63 

326 

Venango    County    Children's 

Aid  Society      .... 

Oil  City 

Venango 

lO 

142 

324 


LIST   OF    AGENCIES    AND    INSTITUTIONS 


d 

Name  of  agency  or  institution 

City  or  town 

County 

Ji 
jn 

& 

^1 

H 

Qu 

W 

327 

Warren  Children's  Home    . 

Warren 

Warren 

'4 

'74 

328 

Warren  County  Children's  Aid 

Society 

Warren 

Warren 

10 

142 

329 

Washington  County  Children's 

Aid  Society      .... 

Washington 

Washington 

10 

142 

330 

Washington      County      Chil- 

dren's Home    .... 

Washington 

Washington 

3 

76 

33  > 

Western  Home  for  Poor  Chil- 

dren        

Philadelphia 

Philadelphia 

16 

190 

332 

Western     Pennsylvania     Hu- 

mane Society 

Pittsburgh 

Allegheny 

1 1 

148 

333 

Western    Pennsylvania    Insti- 

tution for  Feebie-Minded 

Polk 

Venango 

5 

lOI 

334 

Western  Temporary  Home 

Philadelphia 

Philadelphia 

16 

190 

335 

Westmoreland  Children's  Aid 

Society  Home 

Greensburg 

Westmoreland 

16 

190 

336 

Widener  Memorial  School  . 

Philadelphia 

Philadelphia 

6 

no 

337 

Williamson  Trade  School    . 

Williamson  School 

Delaware 

'4 

•74 

338 

William  T.  Carter  Junior  Re- 

public    

Redington 

Northampton 

4 

9' 

339 

Women's    Association    Chris- 

tian Home        .... 

Pittsburgh 

Allegheny 

19 

218 

340 

Women's  Directory 

Philadelphia 

Philadelphia 

12 

156 

341 

Y 
York  Society  to  Protect  Chil- 

dren       

York 

York 

14 

174 

342 

Young  Women's  Union.      . 

Philadelphia 

Philadelphia 

18 

209 

343 

Z 
Zerbe  Township  Poorhouse 

Zerbe  Township 

Northumberland 

■ 

64 

325 


NDEX 


NDEX 


Actuary:  employed  by  county  chil- 
dren's aid  societies,  20 

Adequate  Records  of  Dependent 
Children  in  Agencies  and  In- 
stitutions: by  J.  Bruce  Byali,  239 

Admission:  dangers  of  too  ready,  241; 
desirability  of  physical  and  psycho- 
logical examinations  for,  240;  in- 
vestigation for,  by  trained  workers 
desirable,  240,241,  important,  240, 
241 ;  methods  pursued  in  investiga- 
tions for  admission,  240 

Adults  and  Children.  See  Institu- 
tions for  Combined  Care  of  Adults 
and  Children 

After-care.    See  Supervision 

Agencies:  placing-out  by,  247,  248. 
See  also  Child-caring  Agencies 

Agencies  and  Institutions,  General 
Summary  For,  230-236;  capacity, 
230;  children  in  care,  231,  232; 
children  placed  out,  232;  employes, 
231;  expenses,  231;  plants  and  en- 
dowments, 230,  231;  public  funds 
received,  231;  relational  condition 
of  children,  232,  233;  sources  of 
supply  furnishing  dependent  chil- 
dren, 232;  statistics,  234-236.  See 
also  General  Summary  for  Agencies 
and  Institutions 

Agency:  definition  of  term  as  used  in 
the  study,  42 

Agency  Forms:  samples  of,  301 

Agents.     See  Workers 

Agricultural  Training:  for  children 
in  institutions,  18,  170-171;  neg- 
lected, 18-19 

Allegheny  City  Home:  sixty-day 
law  enforced  by,  57 

Allegheny  County:  children  in  alms- 
houses of,    56-58;    home   for  de- 


Allegheny  County  {continued) 

pendent  children  contemplated  by, 
74.  See  also  Children's  Aid  Society 
of  Allegheny  County;  Child  Welfare 
Association  of  Allegheny  County 

Allegheny  County  Industrial 
School  for  Boys,  Warrendale, 
Pa.    See  Thorn  Hill  School 

Allegheny  Widows'  Home  Associa- 
tion OF  Pittsburgh,  154 

Almshouse:  Charles  Dickens  on  plac- 
ing child  in,  58;  conditions  de- 
scribed by  Charles  R.  Henderson, 
58;  Florence  L.  Lattimore  quoted 
on  children  in  Pittsburgh,  57 

Almshouses:  children  cared  for  in, 
number  of,  55;  cruelty  of  confining 
children  in,  58;  detention  of  chil- 
dren in,  44-45;  disposition  of  chil- 
dren by,  56;  feeble-minded  children 
in,  55;  Pennsylvania,  physical  con- 
ditions in,  55-56.  See  also  Sixty- 
day  Law 

Almshouses  and  Poorhouses,  55-65; 
reasons  for  omitting  from  general 
summary,  114;  statistical  tables 
concerning,  60-65 

Amalgamation:  of  separate  child-car- 
ing agencies  recommended,  127, 
128.    See  also  Coordination 

Amentia.    See  Feehle-mindedness 

American  Salvation  Army:  institu- 
tions at  Erie  and  Allentown,  206 

Appropriation:  state  supervision  lim- 
ited by  lack  of  adequate,  261 

Appropriation  of  Public  Funds  to 
Private  Institutions.  See  Pub- 
lic Funds 

Associated  Charities:  scope  of  work 
of  various  agencies  known  as,  147 


329 


INDEX 


Associated  Charities,  Scranton: 
union  of,  with  Lackawanna  County 
Humane  Society  in  child-caring 
worii,  145.  See  also  State  Board  of 
Public  Charities 

Avery  College,  24 


Babies:  institutional  care  of,  172 

Backward  Children.    See  Dullards 

Bacon,  Albion  Fellows:  quoted,  2 

Baptist  Orphanages,  178,  179 

Barnabas,  Brother:  at  National  Con- 
ferences of  Charities  and  Correc- 
tion, 200 

Barr,  Martin  W.  :  quoted,  266,  269 

Beaver  County  Children's  Home, 
New  Brighton,  Pa.,  72,  76-78. 

Beck,  Joseph  A.,  243 

Beneficiaries  and  Methods:  con- 
tents of  tables  concerning,  49 

Bethesda  Children's  Christian 
Home:  affiliated  with  Children's 
Bureau  of  Philadelphia,  152 

Biddle,  Mrs.  Edward  W.,  254 

Blair  County  Industrial  Training 
Home,  Williamsburg,  Pa.:  descrip- 
tion and  statistics,  72-73,  76-78 

Blockley  Almshouse:  children  kept 
in,  55;  Philadelphia,  separate  chil- 
dren's building  of,  71 

Board  of  Children's  Guardians:  es- 
tablishment of  proposed,  75 

Board  of  Public  Charities,  Penn- 
sylvania. See  State  Board  of 
Charities 

Boards  of  Visitation:  act  providing 
for,  287,  288 

Buck,  William  Bradford,  245,  253, 
254 

Bucks  County  Children's  Aid  Soci- 
ety: children  placed  out  by,  132; 
scope  of  work,  132 

Burd  Orphan   Asylum,    Philadelphia, 

5'.  "52 
Bureau    for    Jewish    Children    of 

Philadelphia:    branch  of  United 


Bureau  for  Jewish  Children  of 
Philadelphia  (continued) 
Hebrew  Charities,  151;  children 
placed  out  by,  152;  children  in 
care  and  under  supervision  of,  151, 
152;   scope  of  work,  151,  152 

Burns,  Allen  T.,  253 
Byall,  J.  Bruce,  239 


Cabot,  Richard  C:  quoted,  2 

California  Children's  Institutions: 
current  expense  of,  4;  investment 
and  numbers  in,  4;  state  super- 
vision in,  261;  statistics  for,  com- 
pared with  three  states,  13-16;  sub- 
sidy system  for,  22,  23-25 

Capacity:  agencies  and  institutions 
(general  summary),  230;  Baptist 
Orphanage,  179;  Catholic  orphan- 
ages and  homes,  congregate  type, 
198;  Children's  Village  at  Mead- 
owbrook,  171,  172;  general  church 
orphanages  and  homes,  congregate 
type,  206,  cottage  type,  179,  180; 
Girard  College,  187;  Girls'  Indus- 
trial School,  170;  Hershey  Indus- 
trial School,  170;  Home  for  the 
Friendless  at  Pittsburgh,  187;  in- 
stitutions for  combined  care  of 
adults  and  children,  214;  J.  Edgar 
Thomson  School  for  Girls,  172; 
Joint  Shelter  for  Children,  188; 
Methodist  Episcopal  Orphanage, 
179;  nonsectarian  orphanages  and 
homes,  congregate  type,  188,  cot- 
tage type,  169,  173;  of  private  in- 
stitutions for  dependents  defined, 
166;  per  cent  of,  used,  188,  199, 
222;  Pittsburgh  Home  for  Babies, 
172;  Presbyterian  Orphanage,  179; 
Pruner  Home  for  Friendless  Chil- 
dren, 170;  St.  Paul's  Orphans' 
Home  of  the  Pittsburgh  Synod  of 
the  Reformed  Church,  180;  sta- 
tistics of,  in  institutions,  225;Thad- 
deus  Stevens  Industrial  School,  171 

Capital.  See  Investments;  Property 
Valuation 

Care  and  Segregation  of  the  Feeble- 
minded, 266-275 

Carson  College  for  Orphan  Girls: 
donor's  restriction  limiting  work 
of,  251;   not  yet  in  operation,  3 


330 


Carstens,  C.  C:  quoted,  2 

Catholic;  increased  association  of,  and 
non-Catholic  social  workers  tend- 
ing toward  progress,  200,  201 

Catholic  Institutions:  explanation 
of  lower  expenditure  of,  23;  for 
combined  care  of  adults  and  chil- 
dren, 214;  statistics  of  in  four 
states,  22,  23-26;  type  of,  178 

Catholic    Orphanages    and    Homes, 
Congregate  Type,   198-205;    ca- 
pacity,    198,     199;     employes    or 
workers    in,     198;    expenses,    198;    j 
Holy   Family  Polish  Orphan  Asy-    \ 
lum,  199;  lack  of  progress  in  meth-   j 
ods  and  facilities,  199,  200;  number   | 
and    location,    167,    198;    number 
of    children    in    care,     199;    Para-   j 
dise   Protectory,    198;    plants  and    ! 
endowments,  198;   public  funds  re-   j 
ceived,     198;      Roseiia     Foundling 
Asylum,    199;    St.   John's  Orphan 
Asylum,   198;  St.  Joseph's  Orphan    ; 
Asylum,    198;    St.    Paul's  Orphan 
Asylum,  199;   St.  Vincent's  Home, 
199;   St.  Vincent's  Home  and  Ma- 
ternity, 199;   St.  Vincent's  Orphan    [ 
Asylum,  199;  scope  of  work,   198;    1 
statistics,  202-203  I 

Changes  in  Type  and  Location,  243 

Charity  Boards.  See  Associated  Char- 
ities; Public  Charities  Association; 
State  Board  of  Public  Charities. 

Chester  County  Children's  Aid  So- 
ciety; children  placed  out,  132; 
scope  of  work,  132 

Child-bearing  .Age.  See  IV'omen  of 
Child-bearing  Age 

Child-care:  lack  of  understanding  of 
best  methods  of,  242 

Child-caring  .Agencies,  121-162; 
amalgamation  of  separate,  recom- 
mended, 127,  128;  combined  re- 
sults of,  127,  128;  county  chil- 
dren's aid  societies  of  Eastern 
I^ennsylvania,  132-137;  county 
children's  aid  societies  of  Western 
Pennsylvania,  138-144;  expenses, 
133,  compared,  137;  general,  123- 
131;  humane  societies  for  children, 
145-150;  number  and  grouping  of, 
46,  157,  in  Pennsylvania,  19;  num- 


Child-caring  Agencies  {continued) 
ber  of  children  in  care  and  under 
supervision,  127,  155,  137,  138; 
paid  workers  in,  137;  placing-out 
work,  133,  138,  summary,  127, 
128;  plant  and  endowment,  155, 
157;  scope  of  work,  151,  137,  158; 
special,  1 51-156;  statistics,  156; 
summary,  133,  157-161;  supervis- 
ion of  located  wards  by,  i  58 

Child-caring  Institutions;  better  un- 
derstanding between  officials  and 
managing  boards  necessary,  243; 
co-operation  of,  with  county  chil- 
dren's aid  societies  of  Eastern 
Pennsylvania,  133;  groups  of,  in-" 
eluded  in  the  study,  44;  kinds  and 
number,  in  Pennsylvania,  44-47; 
number  and  management,  48;  num- 
ber of  children  placed  out,  247; 
of  Eastern  and  Western  Pennsyl- 
vania, 6;  standards  of  care  in,  30; 
statistics,  225-229;  subsidy  system 
in,  21-32;  summary  for  private, 
222-229.  See  also  Agencies  and 
Institutions;  Institutions  for  Com- 
bined Care  of  Adults  and  Children 

Child-caring  Work:  extent  of,  231, 
232,  233 

Child-placing  Societies:  number  in 
Pennsylvania,  19;  of  Eastern  and 
Western  Pennsylvania  compared, 
20-2 1 .  See  also  Child-caring  Agen- 
cies; Placing-out 

Child  Welfare:  a  state  program  of, 
31-34;  provision  for  a  state  prob- 
lem, 31-32 

Child  Welfare  Association  of  Al- 
legheny County:  children  placed 
out  by,  154;  expenses,  154;  formed 
by  merger  of  Children's  Bureau  and 
Juvenile  Court  Association  of  Alle- 
gheny County,  154;  investigation 
of  children  in  county  almshouse  by, 
58;  merger  of,  with  Allegheny 
County  Children's  Aid  Society,  141, 
155;  number  of  children  in  care 
and  under  supervision,  134;  paid 
workers  employed,  154;  scope  of 
work,  134 

Child  Welfare  Organizations:  Penn- 
sylvania, number  recorded,  3 

Child  Welfare  Work:  definition  of 
term  as  used  in  the  study,  43 


INDEX 


Children:  in  almshouses,  55-58;  in 
care  of  agencies  and  institutions 
(general  summary),  231,  232;  in 
care  of  institutions,  statistics  giv- 
ing number  of,  225 

Children  on  Probation:  revised 
statute  affecting,  283,  284.  See  also 
Probation 

Children's  Aid  Societies:  receive 
children  from  almshouses,  56.  See 
also  Child-caring  Agencies;  County 
Children's  Aid  Societies 

Children's  Aid  Society  of  Alle- 
gheny County:  merged  with 
Child  Welfare  Association  of  Alle- 
gheny County,  141;  paid  worker 
employed  by,  138;  policy  of,  con- 
cerning paid  trained  workers  and 
volunteer  workers,  155;  terms  of 
merger  of,  with  Child  Welfare  As- 
sociation of  Allegheny  County,  155 

Children's  Aid  Society  of  Pennsyl- 
vania: children  placed  out  by,  75, 
123,  133,  152;  Children's  Bureau 
agent  of,  124,  152;  co-operation  of 
county  children's  aid  societies  of 
Eastern  Pennsylvania  with,  132; 
co-operation  of  with  other  chil- 
dren's agencies,  32;  expense  of  the 
study  shared  by,  35;  expenses,  123; 
number  of  children  in  care  and  un- 
der supervision,  123;  plant  and  en- 
dowment, 123;  territory  and  scope 
of  work,  123,  124;  working  alliance 
of,  with  Pennsylvania  Society  to 
Protect  Children  from  Cruelty  at 
Philadelphia,  146 

Children's  Aid  Society  of  Western 
Pennsylvania:  expenses,  125; 
Girls'  Industrial  School  at  Indiana 
owned  by,  125;  incorporated  fed- 
eration of  county  aid  societies,  125, 
138;  number  of  children  in  care 
and  under  supervision,  125;  plant, 
125;  territory  and  scope  of  work, 
125,  126;  unendowed,  125;  vol- 
unteer workers,  125 

Children's  Bureau  of  Philadelphia: 
Bethesda  Children's  Christian 
Home,  Burd  Orphan  Asylum, 
Houseof  St.  Michael  and  All  Angels, 
House  of  the  Holy  Child,  Howard 
Institution,  Lincoln  Institution  and 
Home  for  Destitute  Colored  Chil- 


Children's  Bureau  of  Philadelphia 
{continued) 

dren.  Northern  Home  for  Friend- 
less Children,  Shelter  for  Colored 
Orphans,  Society  for  Organizing 
Charity,  affiliated  with,  152;  Con- 
ference of  Institutions  for  the  Care 
and  Training  of  Children  organized 
under,  152;  example  of  effective 
co-operation,  152,  153;  investiga- 
tions by,  for  other  organizations, 
152;  joint  agency  of  Children's 
Aid  Society  of  Pennsylvania,  Sey- 
bert  Institution,  and  Pennsylvania 
Society  to  Protect  Children  from 
Cruelty,  124,  152;  Joint  Shelter 
under  management  of,  124,  152; 
placing-out  by,  handled  by  Chil- 
dren's Aid  Society  of  Pennsylvania, 
152;  Round  Table  Conference  of 
Colored  Institutions  organized  un- 
der, 152;  scope  of  work,  152 

Children's  Bureau  of  Pittsburgh: 
merged  with  Juvenile  Court  Asso- 
ciation of  Allegheny  County,    154 

Children's  Charities:  separation  of, 
from  other  charities  favored,  264 

Children's  Code,  A,  252;  necessity  for, 
252;  of  Ohio,  252;  recommenda- 
tion for  state  commission  to  pre- 
pare, 32-33.  See  also  Juvenile 
Court  tVork;  Legislation 

Children's  Home  Society  of  Penn- 
sylvania: statistics  concerning, 
126 

Children's  Homes:  efforts  to  obtain 
legislation  for  establishing,  56 

Children's  House  of  the  Home  for 
Incurables,  Philadelphia:  class 
of  cripples  received  by,  105;  for 
crippled  white  children,  description 
and  statistics,  105-106,  110-113 

Children's  Institutions.  See  Insti- 
tutions for  Children 

Children's  Law  of  1883:  concerning 
children  in  almshouses,  57 

Children's  Village:  Chauncey,  New 
York,  18;  Meadowbrook,  Pennsyl- 
vania, 171.  See  also  Seyhert  Insti- 
tution for  Poor  Boys  and  Girls 

Christian  Volunteer  Home,  206 


332 


Christianity  and  the  Social  Crisis: 
by  Dr.  Walter  Rauschenbusch,  293 

Christ's  Home  for  Homeless  and 
Destitute  Children,  169 

Church  Management:  congregate  in- 
stitutions under,  167;  cottage  in- 
stitutions under,  167.  See  also 
Catholic  Orphanages  and  Homes; 
General  Church  Orphanages  and 
Homes 

Classification:  of  public  and  private 
institutions,  44 

Coffee,  Rabbi  Rudolph  !.,  286 

Colored:  crippled  children,  institu- 
tions for,  106-107;  epileptics,  98; 
feeble-minded,  institutions  for,  98; 
institutions  for,  87-88,  89,  98,  106- 
107,  152,  169 

Colored  Institutions:  Round  Table 
Conference  of,  1 52 

Commission  on  Segregation,  Care 
and  Treatment  of  Feeble- 
minded and  Epileptic  Persons: 
appointed  by  Governor  John  K. 
Tener,  270,  report  of,  268,  271-274 

Comparative  Statistics.  See  Statis- 
tics, Comparative 

Comparisons:  in  provision  for  children 
in  sections  of  Pennsylvania,  31 

Conference  of  Charities  and  Cor- 
rection, National:  participation 
of  Catholic  workers  in,  200;  quoted, 
258,  259 

Conference  of  Colored  Institu- 
tions:  Round  Table,  132 

Conference  of  Institutions  for  the 
Care  and  Training  of  Children: 
organized  under  Children's  Bureau 
of  Philadelphia,  132 

Conference  on  the  Care  of  Depend- 
ent Children:  conclusions  of,  on 
placing-out,  122;  quoted,  258 

Congregate  Institutions:  for  de- 
pendent children,  number  and  sta- 
tistics of,  9-10;  number  of,  167; 
predominate,  243 

Congregate  Plan:  undesirable,  243 

Co-operation:  between  agencies  and 
institutions    in    placing-out,    248; 


Co-operation  (continued) 

Children's  Bureau  of  Philadelphia 
example  of  effective,  132,  153;  im- 
portance of  in  child  welfare  work, 
32,  33-34;  in  social  service,  293; 
of  county  children's  aid  societies 
of  Eastern  Pennsylvania  with  child- 
caring  institutions,  133;  with  Chil- 
dren's Aid  Society  of  Pennsylvania, 
132 

Coordination:  of  existing  institutions 
needed,  188,  189.  See  also  Amal- 
gamation 

Cornell,  Dr.  Walter  S.:  quoted,  266, 
267,  268 

Cost:  approximate,  of  adequate  pro- 
vision for  feeble-minded,  274 

Cottage  and  Congregate  Institu- 
tions for  Children:  by  Hastings 
H.  Hart,  173,  249 

Cottage  Institutions:  for  defectives, 
93,  97,  98;  for  delinquents,  81,  82, 
83,  85,  86;  for  dependent  children, 
8-9;   nonsectarian,  167 

Cottage  Plan:  advantages  of  for 
children's  institutions,  17-18 

County  .Agencies:  arrangement  of 
tables  concerning,  49-50 

County  Care  Hospitals:  number  of 
epileptics  in,  272 

County  Children's  Aid  Societies: 
employment  of  volunteers  by,  20. 
See  also  Children's  Aid  Society 

County  Children's  Aid  Societies  of 
Eastern  Pennsylvania,  132-137; 
children  placed  out  by,  134;  co-op- 
eration of,  with  child-caring  insti- 
tutions, 133;  Edwin  D.  Solcnberger 
on,  132;  expenses  of,  133;  number 
of  children  in  care  and  under  super- 
vision of,  134;  paid  workers  for, 
recommended,  134;  placing-out 
children  favored  by,  133;  plants 
and  endowments  of,  133;  statis- 
tics, 135-137;  summary  concern- 
ing plant,  valuation,  financial 
statement,  and  scope  of  work  of, 
133,  134;  volunteer  workers  of,  134 

County  Children's  .^id  Societies  of 
Western  Pennsylvania,  138-144; 
amalgamation  of  adjacent  counties 


333 


County  Children's  Aid  Societies  of 
Western  Pennsylvania  (con- 
tinued) 

into  working  district  with  paid 
worker  recommended,  140;  chil- 
dren placed  out  by,  141;  Children's 
Aid  Society  of  Western  Pennsylva- 
nia incorporated  federation  of,  125; 
expenses  of,  141;  number  of  chil- 
dren in  care  and  under  supervision 
of,  141;  plants  and  endowments  of, 
141;  public  subsidies  not  a  benefit 
to,  139,  140;  statistics,  142-144; 
summary  concerning  plant,  valua- 
tion, financial  statement,  and  scope 
of  work  of,  141 ;  volunteer  workers 
in,  138.  See  also  Children's  Aid 
Societies 

County  Children's  Homes,  45 

Crippled  Children:  institutions  for, 
105-1 13,  comparative  statistics  for 
four  states,  i  5,  general  statistics  of, 
109;  in  Pennsylvania,  105,  number 
and  grouping  of,  45,  46,  number 
and  statistics  of,  12-13,  statistical 
tables  concerning,  110-113;  provi- 
sion for  in  proposed  children's  code, 
33;  Widener  Memorial  School  for,  3 

Criticism:  general,  of  private  orphan- 
ages and  homes,  169 

Current  Expense:  comparative,  for 
children's  institutions  in  four  states, 
13-16 

Current  Statistics,  Comparative: 
contents  of  tables  concerning,  49 

Custodial  Care:  for  dullards,  269, 
270;  for  feeble-minded  women  of 
child-bearing  age,  270,  274,  275; 
for  morons,  270 


Dauphin  County  Children's  Aid  So- 
ciety: children  placed  out  by,  132; 
scope  of  work  of,  132 

Deacon,  J.  Byron,  254 

Defectives:  general  comments  on  in- 
stitutions for,  99-100;  general  sta- 
tistics of  institutions  for,  99;  group- 
ing of  institutions  for  care  of,  45; 
homes  and  training  schools  for,  95- 
104;  in  county  homes,  71;  J.  M. 
Murdoch  on  care  of,  238;  mingling 
of  normal  children  with,  a  detri- 


Defectives  {continued) 

ment  to  both,  199.    See  also  Feeble- 
minded;  Mentally  Deficient 

Definition:  need  of  accepted,  for 
feeble-mindedness,  267 

Definitions  of  Terms,  42-43;  agency, 
42;  capacity,  166;  child  welfare 
work,  43;  cottage  and  congregate 
type,  165,  166;  dullard,  269;  feeble- 
mindedness, 267,  268,  269,  271; 
idio-imbecile,  269;  idiot,  269;  im- 
becile, 269;  institution,  42;  moron, 
269;  placing-out,  166,  167;  private 
funds,  42,  43;  public  funds,  42,  43; 
social  service,  294;  social  workers, 
294;   used  in  the  report,  42-43 

Delaware  County  Children's  Aid 
Society:  children  placed  out  by, 
132;  scope  of  work,  132 

Delinquents:  homes  and  training 
schools  for,  80-94,  180,  general 
comments  and  statistics,  90,  91-94; 
institutions  for,  comparative  sta- 
tistics for  four  states,  15,  grouping 
of,  45,  number  and  statistics  of, 
lo-ii;  placing-out  of,  a  special 
problem,  249 

Department  of  Child-Helping, 
Russell  Sage  Foundation:  atti- 
tude of,  toward  all  child-caring 
work,  297;  criticisms  friendly,  297; 
investigation  by,  35;  spirit  and 
purposes  of,  296 

Dependency  OF  Children:  sources  of, 
232,  233 

Dependents  :  institutions  for,  compara- 
tive statistics  for  four  states,  13- 
15;  private  institutions  for,  163- 
236;  state  and  county  homes  for 
care  of,  45,  71-79 

Desertion  of  Families:  act  increas- 
ing powers  of  courts  in  proceedings 
for,  286 

Detention  Home:  rooms  in  Harris- 
burg  almshouse  used  as,  55 

Detention  Homes:  additional  data  in 
summary  tables,  114;  law  for  es- 
tablishment not  generally  com- 
plied with,  66,  246;  need  for,  11- 
12;  number  and  children  cared  for 
in,  11;  number  studied,  45;  Phil- 
adelphia, 68;  records  of  inadequate. 


334 


INDEX 


Detention  Homes  [contimicd) 

66;  statistical  tables  concerning, 
69-70;  substitutes  provided  for, 
66;   valuation  of  three,  66 

Detention  Homes  of  Juvenile 
Courts,  66-70;  revised  statute 
providing  for,  283 

Devine,  Edward  T.:  quoted,  2 

Dickens,  Charles:  on  crime  of  placing 
child  in  an  almshouse,  58 

Digest  of  the  Laws  Relating  to  the 
Board  of  Public  Charities,  291 

Discharged  Wards:  placing-out  of, 
247.    See  also  Placing-out 

Dismissed  by  Agencies  and  Institu- 
tions: summary  showing  number 
and  destination  of  children,  232 

District  of  Columbia:  children's  in- 
stitutions, 4. 

Dullards:  custodial  care  for,  269,  270; 
definition  of  term,  269.  See  also 
Feeble-minded 


Eastbrook  Home  for  Destitute 
Negro  Children,  169 

Eastern  Pennsylvania  Children's 
Aid  Societies.  See  County  Chil- 
dren's Aid  Societies  of  Eastern  Petm- 
sylvania 

Eastern  Pennsylvania  Institution 
for  Feeble-Minded,  Spring  City: 
description  and  statistics  of,  96- 
97,  101-104 

Economy,  False,  242,  243 

Education,  244;  advantages  of  pub- 
lic school,  244 

Elements  of  Record  Keeping  for 
Child-Helping  Organizations: 
by  Georgia  G.  Ralph,  240 

Ellis  College  for  Fatherless  Girls: 
donor's  restriction  limiting  work  of, 
231,252;   not  yet  in  operation,  3 

Elmwood  Home,  North  Springfield,  Pa.: 
for  delinquent  boys,  description  and 
statistics  of,  86,  91-94 

Elwyn  School  for  Feeble-minded, 
32,  97,  98;  number  of  epileptics,  272 


Emmert,  Professor  David:  founder  of 
Juniata  Valley  Children's  Aid  So- 
ciety, 127 

Employe:  children  per,  226 

Employes:  Baptist  Orphanage,  179; 
Children's  Village  at  Meadowbrook, 
171,  172;  Girard  College,  187; 
Girls'  Industrial  School,  170;  Her- 
shey  Industrial  School,  170;  Home 
for  the  Friendless  at  Pittsburgh, 
187;  J.  Edgar  Thomson  School  for 
Girls,  172;  Joint  Shelter  for  Chil- 
dren, 188;  Methodist  Episcopal 
Orphanage,  179;  Pittsburgh  Home 
for  Babies,  172;  Presbyterian  Or- 
phanage, 179;  Pruner  Home  for 
Friendless  Children,  170;  St. 
Paul's  Orphans'  Home  of  the  Pitts- 
burgh Synod  of  the  Reformed 
Church,  180;  salaries,  226;  Thad- 
deus  Stevens  Industrial  School,  171. 
See  also  IVorkers 

Encouraging  Features,  235 

Endowed,  Not:  Children's  Aid  So- 
ciety of  Western  Pennsylvania,  123; 
Juniata  Valley  Children's  Aid  So- 
ciety, 126 

Endowments:  agencies  and  institu- 
tions, general  summary,  230,  231; 
aggregate,  general  church  orphan- 
ages and  homes,  cottage  type,  179; 
Catholic  orphanages  and  homes, 
congregate  type,  198;  child-caring 
agencies,  137;  children's  aid  socie- 
ties of  Pennsylvania,  123;  Chil- 
dren's Home  Society  of  Pennsylva- 
nia, 126;  Children's  Village  at 
Meadowbrook,  171,  172;  county 
children's  aid  societies  of  Eastern 
Pennsylvania,  133;  county  chil- 
dren's aid  societies  of  Western 
Pennsylvania,  141;  general  church 
orphanages,  and  homes,  congregate 
type,  206;  Girard  College,  187,231; 
Girls'  Industrial  School,  170;  Her- 
shey  Industrial  School,  170;  Home 
for  the  Friendless  at  Pittsburgh, 
187;  Home  Missionary  Society  of 
Philadelphia,  124;  humane  f'so- 
cieties  for  children,  146;  institu- 
tions for  combined  care  of  adults 
and  children,  215;  J.  Edgar  Thom- 
son School  for  Girls,  172;  Joint 
Shelter    for    Children,    188;     non- 


335 


Endowments  (continued) 

sectarian  orphanages  and  homes, 
congregate  type,  i88;  Pennsylva- 
nia Society  to  Protect  Children 
from  Cruelty,  146;  Pittsburgh 
Home  for  Babies,  172;  private  in- 
stitutions for  dependents,  222; 
Pruner  Home  for  Friendless  Chil- 
dren, 170;  statistics  of,  to  institu- 
tions, 223;  Thaddeus  Stevens  In- 
dustrial School,  171.  See  also 
Property  Valuation 

Epileptic  Hospital  and  Colony 
Farm,  Oakbourne,  Pa.:  description 
and  statistics  of,  99,  272 

Epileptics:  commission  on  segregation 
and  care  of,  appointed,  270,  report 
of,  268,  271-274;  number  of,  in 
different  institutions,  272;  provi- 
sion for  in  proposed  children's  code, 
33 

Epileptics,  Passavant  Memorial 
i  Home  for:  description  and  statis- 
tics of,  98-99,  1 01-104,  272 

Episcopal.    See  Protestant  Episcopal 

Equipment:  Baptist  Orphanage,  179; 
Methodist  Episcopal  Orphanage, 
179;  Presbyterian  Orphanage,  179; 
St.  Paul's  Orphans'  Home  of  the 
Pittsburgh  Synod  of  the  Reformed 
Church,  180 

Erie  County:  excellent  detention 
home  of,  66-67 

Expenditure:  of  children's  institu- 
tions, comparison  for  four  states, 
24,  25-26 

Expense:  average,  of  state  and  county 
homes,  75;  comparison  of  current, 
in  child-caring  agencies,  157,  in 
groups  of  children's  institutions  in 
Eastern  and  Western  Pennsylvania, 
7-13;  current,  of  children's  insti- 
tutions in  Eastern  Pennsylvania,  7, 
in  eight  states,  4,  of  state  and 
county  homes  for  children  in  Penn- 
sylvania, 8;  for  maintenance, 
statute  concerning,  284;  statistics 
of  maintenance,  of  institutions,  224, 
per  capita,  225;  variations  in  data 
concerning  maintenance,  51 

Expenses:  Baptist  Orphanage,  179; 
Catholic   orphanages    and   homes, 


Expenses  (continued) 

congregate  type,  198;  Child  Wel- 
fare Association  of  Allegheny 
County,  154;  Children's  Aid  So- 
ciety of  Pennsylvania,  123;  Chil- 
dren's Aid  Society  of  Western 
Pennsylvania,  125;  Children's 
Home  Society  of  Pennsylvania, 
126;  Children's  Village  at  Meadow- 
brook,  171,  172;  county  children's 
aid  societies  of  Eastern  Pennsylva- 
nia, 133;  county  children's  aid  so- 
cieties of  Western  Pennsylvania, 
141;  general  church  orphanages 
and  homes,  congregate  type,  206, 
207;  Girard  College,  187;  Girls' 
Industrial  School,  170;  Hershey 
Industrial  School,  170;  Home  for 
the  Friendless  at  Pittsburgh,  187; 
Home  Missionary  Society  of  Phil- 
adelphia, 124;  Humane  Society  for 
Children,  147;  institutions  for  com- 
bined care  of  adults  and  children, 
215;  J.  Edgar  Thomson  School 
for  Girls,  172;  Joint  Shelter  for 
Children,  188;  Juniata  Valley 
Children's  Aid  Society,  126;  Ju- 
venile Aid  Society  of  Philadelphia, 
153;  Methodist  Episcopal  Orphan- 
age, 179;  nonsectarian  orphanages 
and  homes,  congregate  type,  187, 
188,  cottage  type,  172,  173;  Penn- 
sylvania Society  to  Protect  Chil- 
dren from  Cruelty,  146;  Pitts- 
burgh Home  for  Babies,  172;  Pres- 
byterian Orphanage,  179;  Pruner 
Home  for  Friendless  Children,  170; 
St.  Paul's  Orphans'  Home  of  the 
Pittsburgh  Synod  of  the  Reformed 
Church,  180;  Society  for  the  Care 
of  Jewish  Orphans,  155;  special 
child-caring  agencies,  155;  sum- 
mary of,  by  agencies  and  institu- 
tions, 231,  for  private  institutions 
for  dependents,  222,  223;  Thad- 
deus Stevens  Industrial  School, 
171;  Women's  Directory  of  Phil- 
adelphia, 153 


Falconer,  Martha  P.,  244,  254 

Faulkner,  C.  E.:  quoted,  164 

Feeble-minded:  adequate  provision 
for,  approximate  cost  of,  274,  275; 
care  and  segregation  of,  266-275; 
care  of,   in  almshouses,   hospitals. 


336 


Feeble-minded  [continued) 

and  institutions  for  delinquents, 
disapproved,  272;  care  required  for, 
269,  270;  children  in  almshouses, 
55;  classification  of  groups,  268, 
269;  commission  on  segregation 
and  care  of,  appointed,  270;  East- 
ern Pennsylvania  Institution  for, 
description  and  statistics  of,  96-97, 
101-104;  general  estimates  as  to 
number  of,  272,  273;  homes  and 
training  schools  for,  95-104;  insti- 
tutions for,  comparative  statistics 
for  four  states,  15;  law  for  estab- 
lishment of  village  for,  women,  100, 
286,  287;  number  and  statistics  of, 
12;  number  of,  not  in  appropriate 
institutions,  272,  on  waiting  lists  of 
institutions,  272;  per  cent  of,  defi- 
nitely and  appropriately  provided 
for,  274;  placed  out,  245;  provi- 
sion for,  in  proposed  children's  code, 
33;  provision  for,  inadequate  at 
present,  244,  245,  272;  report  of 
Pennsylvania  commission  on,  15; 
segregation  of,  important,  244,  245; 
situation  in  regard  to  care  and 
segregation  of,  270-274;  special 
study  now  given,  266;  statistics  of, 
in  Pennsylvania  institutions,  271; 
suggestions  for  state  program  rela- 
tive to,  274,  275;  Western  Penn- 
sylvania Institution  for,  description 
and  statistics  of,  95^6,  101-104; 
women  of  child-bearing  age,  cus- 
todial care  urgently  needed  for, 
270,  274,  275.  See  also  Mentally 
Deficient 

Feeble-Minded  a  Sociological  Prob- 
lem, The:  by  Martin  \V.  Barr,  266, 
269 

Feeble-Minded, Pennsylvania  Train- 
ing School  for,  Elwyn:  descrip- 
tion and  statistics  of,  97-98,  loi- 
104 

Feeble-Minded  World,  The:  by 
Walter  S.  Cornell,  266,  268 

Feeble-Mindedness:       causes,      266, 

267,  268;   defined  by  Pennsylvania 
commission,  271;    definitions,  267, 

268,  269,   271;    need   of  accepted 
definitions,  267 

Field  Work:   aims  and  difficulties,  41 


Financial  Statistics:  contents  of  ta- 
bles concerning,  48-49;  county 
children's  aid  societies  of  Eastern 
Pennsylvania,  133,  134;  county 
children's  aid  societies  of  Western 
Pennsylvania,  141;  humane  socie- 
ties for  children,  146,  147;  Penn- 
sylvania Society  to  Protect  Chil- 
dren from  Cruelty,  146 

Flinn,  Miss  Mary,  254 
Florence  Crittenton  Homes,  214 
Forms,  Samples  of  Agency,  301 
Foundlings:    care  of  in  Philadelphia, 

75 
Franklin  County  Children's  Aid  So- 
ciety: scope  of  work,  133 

Frazier,  Dr.  Charles  H.,  254 

Friends'  Orphanages,  206 

Fuller,  Fred  W.,  253 

Funds.  See  Private  Funds;  Public 
Funds 


Gates,  W.  .\.:  quoted,  261;  state  pro- 
gram outlined  by,  261,  262 

Gavisk,  Father  Francis  H.:  at  Na- 
tional Conference  of  Charities  and 
Correction,  200;  on  state  super- 
vision, 258,  259 

General  and  Legislative  Matters, 
237-298 

General  Child-caring  Agencies. 
See  Child-caring  Agencies,  General 

General  Church  Orphanages  and 
Homes:  Baptist,  278;  Hebrews, 
178;  Lutheran,  178;  Mennonites, 
178;  Methodist  Episcopal,  178; 
Presbyterian,  178;  Protestant  Epis- 
copal, 178;  Reformed,  178;  Roman 
Catholic,  178;  statistics,  209-213; 
United  Brethren,  179 

General  Church  Orphanages  and 
Homes,  Congregate  Type,  206- 
213;  American  Salvation  Army, 
206;  capacity,  206;  Christian  Vol- 
unteers, 206;  employes  or  workers, 
206;  expenses,  206,  207;  Friends, 
206;  general  character,  207,  208; 
German  Protestants,  206;  Hebrew 
Farm  School,  206,  207;  Jewish  Fos- 


337 


INDEX 


General  Church  Orphanages  and 
Homes,  Congregate  Type  {con- 
tinued) 

ter  Home  and  Orphan  Asylum,  207; 
Lutheran  Orphans'  Home,  206,  207; 
Mennonites,  206;  Methodist  Epis- 
copalians, 206;  methods  of  investi- 
gation and  supervision  of  cases, 
207;  number  of  children  in  care, 
206;  number,  religious  denomina- 
tions, and  locations,  206;  plants 
and  endowments,  206;  Protes- 
tant Episcopalians,  206;  public 
funds  received,  206;  Reformed 
church,  206;  Salvation  Army,  206; 
scope  of  work,  206,  207;  Shelter  for 
Colored  Orphans,  207;  United 
Presbyterians,  206 

General  Church  Orphanages  and 
Homes,  Cottage  Type,  178-185; 
capacity,  179,  180;  endowment, 
179;  number  of  children  in  care, 
180;  scope  of  work,  180,  181; 
statistics,  182-185;  value  of  plants, 
179 

General  Comments:  concerning  insti- 
tutions for   crippled   children,   109 

General  Suggestions  and  Recom- 
mendations, 239-255 

General  Summary  for  Agencies  and 
Institutions,  230-236.  See  also 
Agencies    and  Institutions 

George  Junior  Republic  of  Wes- 
tern Pennsylvania:  description 
and  statistics,  84-85,  91-94 

German  Protestant  Orphanage,  206 

GiRARD  College  for  Orphan  Boys: 
agricultural  training,  provision  for 
neglected,  18-19;  amount  of  in- 
vestment, 3;  assets  not  fully  used, 
17;  description,  16-19;  donor's  re- 
striction limiting  work,  250;  en- 
dowment, 231;  statistics,  16-19, 
187,  reasons  for  differentiating,  5, 
7;     suggestions    regarding,    17-18 

Girls'  Industrial  School,  125;  sta- 
tistics, 170 

Glen  Mills  Schools:  boys'  depart- 
ment, description  and  statistics,  83- 
84,  91-94;  girls'  department,  de- 
scription and  statistics,  82-83, 
91-94;  semi-public  institutions,  80, 
83 


Good  Will  Farm,  Hinckley,  Maine,  17 

Greene  County  Children's  Home: 
description  and  statistics,  73-74, 
76-79 

Grouping:  of  data  gathered  in  the 
study,  42 


Harrisburg  Almshouse:  detention 
home  located  in,  55 

Hart,  Dr.  Hastings  H.:  Cottage  and 
Congregate  Institutions,  quoted, 
173;  on  misguided  benevolence, 
249;  quoted,  164 

Health  :  authoritative  inspection  to  en- 
force standards  of,  needed,  244. 
See  also  Physical  Conditions 

Hebrew  Farm  School,  207 

Hebrew  Institutions,  178,  206 

Hebrew  Sheltering  Guardian  Or- 
phan Asylum,  New  York:  occupa- 
tional training,  18 

Henderson,  Charles  R.:  almshouse 
conditions  described  by,  58;  on 
placing-out  children,  122 

Hershey  Industrial  School,  170 

Holmes,  Thomas:  quoted,  274 

Holy  Family  Polish  Orphan  Asylum, 
199 

Home  for  the  Friendless,  Pittsburgh, 
187 

Home  Missionary  Society,  Philadel- 
phia: children  placed  out,  125;  ex- 
penses, 124;  number  of  children  in 
care  and  under  supervision,  125; 
plant  and  endowment  of,  124;  scope 
of  work,  124,  125 

Home  of  the  Merciful  Saviour  for 
Crippled  Children,  Philadelphia: 
description  and  statistics,  106,  1 10- 
113;  class  of  children  received,  106 

Homeless  Children:  care  of,  233 

Homes:  for  dependents,  state  and 
county,  71-79.  See  also  Catholic 
Orphanages  and  Homes;  General 
Church  Orphanages  and  Homes; 
Nonseclarian  Orphanages  and 
Homes 


338 


Homes  and  Training  Schools:  for  de- 
linquents, 80-94 

Homes,  County:  for  dependent  chil- 
dren, capital  and  expense,  8 

Homes,  State:  for  dependent  children, 
capital  and  expense,  8 

House  of  Detention.  See  Detention 
Homes 

House  of  St.  Michael  and  All  An- 
gels: for  crippled  Negro  children, 
aflTiliated  with  Children's  Bureau  of 
Philadelphia,  152;  description  and 
statistics,  106-107,  •10-113 

House  of  the  Holy  Child:  affiliated 
with  Children's  Bureau  of  Philadel- 
phia, 132 

Housing:  provided  for  widows  and 
children,  154 

Howard  Institution:  affiliated  with 
Children's  Bureau  of  Philadelphia, 
152 

Humane  Societies  for  Children,  145- 
150;  arrangement  of  tables  con- 
cerning, 49-30;  children  placed 
out,  147;  expenses,  147;  number 
in  Pennsylvania,  19;  number  of 
children  in  care  and  under  super- 
vision, 147;  of  Eastern  and  West- 
ern Pennsylvania  compared,  20- 
21;  plants  and  endowments,  146; 
statistics,  148-150;  summary  con- 
cerning plant,  valuation,  financial 
statement,  and  scope  of  work,  146 
'47 

Hurley,  T.  D.:  on  juvenile  court  law, 
238 


Idio-imbeciles:  definition  of  term,  269. 
See  also  Feeble-minded 

Idiots:  definition  of  term,  269.  See 
also  Feeble-minded 

Illinois:  state  supervision  in,  236 

Imbeciles:  definition  of  term,  269. 
See  also  Feeble-minded 

Inception  of  the  Study,  33 

Industrial  Home  for  Crippled  Chil- 
dren, Pittsburgh:  for  crippled 
white  children,  description  and  sta- 
tistics, 108,  iio-i 13 


Industrial  Training:  at  Thorn  Hill 
School,  82;  state  and  county  homes 
having,  71-72,  72-73.  See  also 
Blair  County  Industrial  Training 
Home;  Girls'  Industrial  School; 
Hershey  Industrial  School;  Indus- 
trial School  for  Soldiers'  Orphans'; 
Thaddeus  Stevens  Industrial  School; 
Thorn  Hill  School 

Inspection.    See  Supervision 

Institution:  definition  of  term  as  used 
in  the  study,  42 

Institution  of  Protestant  Deacon- 
esses: in  charge  of  home  for  epi- 
leptics, 98 

Institutional:  care  of  babies,  172;  de- 
fects in,  placing-out,  247 

Institutions  for  Combined  Care  of 
Adults  and  Children,  214-221; 
capacity,  214;  children  placed  out, 
215;  congregate  type,  214;  cottage 
type,  214;  employes  or  workers, 
213;  expenses,  213;  Florence  Crit- 
tenton  Homes,  214;  general  char- 
acter, 213;  Lutheran,  214;  non- 
sectarian,  214;  number  of,  168; 
number  of  children  in  care,  213; 
plants  and  endowments,  215;  Prot- 
estant Episcopal,  214;  public 
funds  received  by,  213;  Roman 
Catholic,  214;-  scope  of  work,  214; 
secretiveness  of  certain,  213;  sta- 
tistics, 218-221;  suggestions  and 
recommendations  for  improve- 
ment of,  213,  216,  217;  type,  num- 
ber, religious  denominations,  and 
locations,  214 

Institutions.  See  also  Agencies  and 
Institutions 

Investigation:  need  of  special,  240, 
241 

Investigations:  before  placing-out, 
249;  by  Children's  Bureau  of  Phil- 
adelphia for  other  organizations, 
152;  of  cases  by  general  church 
orphanages  and  homes  of  congre- 
gate type,  207.  See  also  Admission, 
Investigation  for 

Investment:  comparative,  in  groups  of 
children's  institutions  of  Eastern 
and  Western  Pennsylvania,  7-13, 
of  eight   states,   4;    in  state  and 


339 


Investment  (continued) 

county  homes  for  children,  Penn- 
sylvania, 8;  per  capita  in  institu- 
tions, 225.  See  also  Property  f^al- 
uations 

Iowa:  state  supervision  in,  262 


J.  Edgar  Thomson  School  for  Girls, 
172 

Jewish  Foster  Home  and  Orphan 
Asylum, 207 

Joint  Shelter  for  Children,  188; 
managed  by  Children's  Bureau  of 
Philadelphia,  124,  152 

Juniata  Valley  Children's  Aid  So- 
ciety; children  placed  out  by,  126; 
expenses,  126;  number  of  children 
in  care  and  under  supervision,  126; 
plant,  126;  Professor  David  Em- 
mert  founder  of,  127;  territory  and 
scopeofwork,  126,  127;  unendowed, 
126 

Juvenile  Aid  Society,  Philadelphia: 
children  placed  out  by,  153;  ex- 
penses, 153;  number  of  children  in 
care  and  under  supervision,  153; 
scope  of  work,  153 

Juvenile  Court:  H.  P.  Richardson  on, 
67,  68,  246;  Philadelphia,  excellent 
features  of,  68;  improvements  in 
conditions,  67-68 

Juvenile  Court  Association  of  Alle- 
gheny County:  merged  with  Chil- 
dren's Bureau,  134 

Juvenile  Court  Law:  contrasts  in  en- 
forcement of,  31;  T.  D.  Hurley  on, 
238.    See  also  Children's  Code 

Juvenile  Court  Work,  246,  247;  suc- 
cess of,  retarded  by  rotation  of 
judges,  246 

Juvenile  Courts:  detention  homes  of, 
statistics,  11-12.  See  also  Deten- 
tion Homes 


Kingsley,  Sherman  C:  quoted,  2 


Lackawanna  County  Humane  So- 
ciety: union  of,  with  Associated 
Charities  at  Scranton,  145 


Lattimore,  Florence  L.:  report  of 
children  in  Pittsburgh  almshouses, 
quoted,  57 

Law  of  1913  for  Mothers'  Assist- 
ance, 276-282,  285,  286 

Laws:  contradiction  of  existing,  rela- 
ting to  children,  252.  See  also 
Legislation;  Statutes 

Legislation:  concerning  children  in 
almshouses,  56,  57,  59,  290,  chil- 
dren on  probation,  283,  284,  deser- 
tion of  families,  286,  establishment 
of  detention  homes,  66,  283,  state 
appropriations,  291;  defining  re- 
sponsibility for  maintenance  of  de- 
pendent children,  284;  Digest  of 
the  Laws  Relating  to  the  Board  of 
Public  Charities,  209;  new,  a  neces- 
sity, 291,  292;  secured  by  Public 
Charities  Association,  254;  for  es- 
tablishing children's  homes  de- 
sired, 36;  village  for  feeble-minded 
women,  100,  286,  287;  ill-consid- 
ered, dangerous,  291,  292;  neces- 
sity for  children's  code,  252;  pro- 
vided in  proposed  children's  code, 
33;  providing  for  boards  of  visita- 
tion, 287,  288;  providing  for  state 
supervision,  261,  288,  289.  See 
also  Children's  Code;  Laws; 
Statutes 

Legislative  Matters,  General  and: 
237-298 

Licensing:  no  method  of,  private  char- 
ities, 260 

Lincoln  Institution  and  Home  for 
Destitute  Colored  Children: 
affiliated  with  Children's  Bureau  of 
Philadelphia,  132 

Little,  Riley  M.,  254 

Location:  changes  in  type  and,  243;  of 
Catholic  orphanages  and  homes, 
congregate  type,  198;  general 
church  orphanages  and  homes  of 
congregate  type,  206;  institutions 
for  combined  care  of  adults  and 
children,  214;  nonsectarian  orphan- 
ages and  homes,  congregate  type, 
187 
Locations:  confined,  undesirable,  243 
Lutheran  Institutions,  178,  206,  207 


340 


INDEX 


Luzerne  County  Humane  Society: 
union  of,  with  United  Charities  at 
W'ilkes-Barre,  145 

Lycoming  Children's  Aid  Society: 
scope  of  work,  133 


Madeira,  Mrs.  Louis  C,  254 

Magdalen  Society,  Philadelphia:  for 
delinquent  white  girls,  description 
and  statistics,  86-87,  9'~94 

Maintenance  Expense.    See  Expense 

Management:  economy  of,  242;  of 
nonsectarian  orphanages  and 
homes,  169;  type  of,  the  index  for 
classification  as  public  or  private, 
44,  168 

Managing  Boards:  necessity  for  bet- 
ter understanding  between,  and 
institution  officers,  243 

Maryland:  children's  institutions,  cur- 
rent expense,  4,  investment  and 
numbers  in,  4,  statistics  of,  com- 
pared with  three  states,  13-16,  sub- 
sidy system  for,  22,  23-25 

Massachusetts:  children's  institu- 
tions, current  expense,  4,  invest- 
ment and  numbers  in,  4,  children's 
visitors  employed  by,  30 

McCarthy,  Dr.  D.  J.,  254 

McClain,  Franklin  B.,  253 

McCoucH,  Mrs.  H.  Gordon,  254 

McCoucH,  Virginia  M.  P.:  quoted, 
277 

McMahon,  Rev.  Father  D.  J.:  on 
state  supervision,  258 

Meadowbrook.  See  Children's  tillage 
at  Meadowbrook;  Seyhert  Institu- 
tion 

Mennonite  Orphanages,  178,  206 

Mental  Defectives:  in  county  homes, 

71 
Mentally  Deficient  Children,  244, 

245.      See    also    Feeble-minded 

Mercer  County  Children's  Aid  So- 
ciety: paid  worker  employed  by, 
138 


Methodist  Episcopal  Orphanages: 
178,  179,  206 

Miscellaneous      Institutions  for 

Children:     dealt    with    in  Part 

Two,  53-119;    summary  for,  114- 
119 

Misguided  Benevolence,  249-252 

Montgomery  County:  excellent  de- 
tention home,  66-67 

Montgomery  County  Children's  Aid 
Society:  children  placed  out  by, 
133;   scope  of  work,  133 

Morganza.  See  Pennsylvania  Training 
School 

Morons:  custodial  care  for,  270; 
definition  of  term,  269.  See  also 
Feeble-minded 

Mothers'  Assistance  Law  of  1913, 
276-282,  285,  286;  attitude  of 
trustees  toward,  277;  counties  or- 
ganized under,  277;  delays  in  ac- 
tive operation  of,  276:  objections 
to,  276,  277;  opposition  to,  276; 
statistics  of  work  under,  in  Alle- 
gheny County  and  Philadelphia 
County,  282;  unity  of  administra- 
tion of,  desirable,  281 

Mothers'  .Assistance  Fund  Trustees 
OF  Allegheny  County:  report  of, 
quoted,  278 

Mothers'  Assistance  Fund  Trustees 
OF  Philadelphia  County:  changes 
in  system  suggested  by,  280;  re- 
port of,  quoted,  278 

Mulry,  Thomas  M.:  at  National  Con- 
ference of  Charities  and  Correc- 
tion, 200 

Municipalities:  can  not  deal  ade- 
quately with  child  welfare  prob- 
lems, 31-32 

Murdoch,  J.  M.:  on  care  of  defectives, 
238 


National  Conference  of  Charities 
AND  Correction:  participation  of 
Catholic  social  workers  in,  200; 
quoted,  258,  259 

Negroes.    See  Colored 


341 


New  Hampshire:  children's  institu- 
tions, current  expense,  4,  invest- 
ment and  numbers  in,  4 

New  York:  child  welfare  organizations, 
number  of,  3;  children's  institu- 
tions, current  expense,  4,  invest- 
ment and  numbers,  4,  ratio  of  chil- 
dren in,  to  population,  6,  size,  5, 
statistics,  compared  with  three 
states,  13-16,  subsidy  system,  22, 
23-25 

New  York  State  Agricultural  and 
Industrial  School,  Industry, 
N.  Y.,  18 

Non-Catholic  Institutions:  statis- 
tics of  in  four  states,  22,  23-26 

Nonsectarian  Institutions:  for  com- 
bined care  of  adults  and  children, 
214;  number  of  congregate,  167; 
number  of  cottage,  167 

Nonsectarian  Orphanages  and 
Homes:  management,  169;  sta- 
tistics concerning,  174-177,  190^ 
197 

Nonsectarian  Orphanages  and 
Homes,  Congregate  Type,  186- 
197;  capacity,  188;  employes,  188; 
expenses,  187,  188;  Girard  College, 
187;  Home  for  the  Friendless,  187; 
Joint  Shelter  for  Children,  188; 
number  and  location,  187;  number 
of  children  in  care,  188;  Orphan 
Society  of  Philadelphia,  187;  per 
cent  of  capacity  used,  188;  per 
cent  of  children  in,  reported  as 
orphans,  18^^;  plants  and  endow- 
ments, 188;  progress,  186;  public 
funds  received,  188;  visits  of  trained 
inspectors  to,  desirable,  186 

Nonsectarian  Orphanages  and 
Homes,  Cottage  Type,  169- 
177;  capacity,  169,  173;  Children's 
Village,  171;  Christ's  Home  for 
Homeless  and  Destitute  Children, 
169;  Eastbrook  Home  for  Destitute 
Negro  Children,  169;  employes, 
173;  expenses,  172,  173;  Girls'  In- 
dustrial School,  170;  Hershey  In- 
dustrial School,  170;  J.  Edgar 
Thomson  School  for  Girls,  172; 
number,  169;  number  of  children 
in  care,  173;  Pittsburgh  Home  for 
Babies,     172;    Pruner    Home    for 


Nonsectarian  Orphanages  and 
Homes,  Cottage  Type  (continued) 
Friendless  Children,  170;  Thad- 
deus  Stevens  Industrial  School, 
170;  value  of  plant,  173 

Northern  Home  for  Friendless 
Children,  51;  affiliated  with  Chil- 
dren's Bureau  of  Philadelphia,  132 

Notes  on  Causation  of  Mental 
Defect:    by  Martin  W.  Barr,  266 

Number:  of  private  institutions  for 
dependents,  165 

Number  of  Children  in  Care  and 
Under  Supervision:  of  Baptist 
Orphanage,  179;  Bureau  for  Jewish 
Children,  151,  152;  Catholic  or- 
phanages and  homes,  congregate 
type,  199;  child-caring  agencies, 
157,  158;  Child  Welfare  Associa- 
tion of  Allegheny  County,  154; 
Children's  Aid  Society  of  Penn- 
sylvania, 123;  Children's  Aid  So- 
ciety of  Western  Pennsylvania, 
125;  children's  institutions  in  eight 
states,  compared,  4;  Children's 
Village,  171,  172;  county  children's 
aid  societies  of  Eastern  Pennsyl- 
vania, 134;  county  children's  aid 
societies  of  Western  Pennsylvania, 
141;  general  child-caring  agencies, 
127;  general  church  orphanages 
and  homes,  congregate  type,  206, 
cottage  type,  180;  Girard  College, 
187;  Girls'  Industrial  School,  170; 
Hershey  Industrial  School,  170; 
Holy  Family  Polish  Orphan  Asy- 
lum, 199;  Home  for  the  Friendless, 
187;  Home  Missionary  Society  of 
Philadelphia,  125;  humane  socie- 
ties for  children,  147;  institutions 
for  combined  care  of  .adults  and 
children,  215;  J.  Edgar  Thomson 
School  for  Girls,  172;  Joint  Shelter 
for  Children,  188;  Juniat  Valley 
Children's  Aid  Society,  126;  Juve- 
nile Aid  Society,  153;  Methodist 
Episcopal  Orphanage,  179;  non- 
sectarian  orphanages  and  homes, 
congregate  type,  188,  cottage  type, 
173;  Pennsylvania  Society  to  Pro- 
tect Children  from  Cruelty,  146; 
Pittsburgh  Home  for  Babies,  172; 
Presbyterian  Orphanage,  179;  pri- 
vate institutions  for  dependents, 
222;   Pruner  Home  for   Friendless 


342 


INDEX 


Number  of  Children  in  Care  and 
Under  Supervision  {continued) 
Children,  170;  Roselia  Foundling 
Asylum,  199;  St.  Paul's  Orphan 
Asylum,  199;  St.  Paul's  Orphans' 
Home,  180;  St.  Vincent's  Home. 
199;  St.  Vincent's  Home  and 
Maternity,  199;  St.  Vincent's  Or- 
phan .Asylum,  199;  Society  for  the 
Care  of  Jewish  Orphans,  135;  spe- 
cial child-caring  agencies,  155; 
Thaddeus  Stevens  Industrial 
School,  171;  Western  Pennsylvania 
Humane  Society,  146;  Women's 
Directory,  133 


Occupational  Training:  at  Gir.ird 
College,  16;  at  Hebrew  Sheltering 
Guardian  Asylum,   New  York,   18 

Ohio:  children's  code  in,  232;  children's 
institutions,  current  expense,  4,  in- 
vestment and  numbers  in,  4 

Orphan  Society  of  Philadelphia, 
187 

Orphanages  and  Homes:  private, 
general  criticism  of,  169,  number 
and  grouping  of,  46.  See  also 
Catholic  Orphanages  and  Homes; 
General  Church  Orphanages  and 
Homes;  Nonseciarian  Orphanages 
and  Homes 

Orphans:  per  cent  of  children  cared 
for  reported  as,  188 


Paid  Workers.     See  IVorkers,  Paid 

Paradise  Protectory,  198 

Parental  Schools:  suggestions  con- 
cerning establishment  of,  90 

Parents:  treatment  of  by  children's 
societies,  21 

Passavant  Memorial  Home  for 
Epileptics,  Rochester,  Pa.:  de- 
scription and  statistics  of,  98-99, 
10 1 -104,  272 

Penn,  W.  F.  :  superintendent  of  Penn- 
sylvania Training  School,  excellent 
work  of,  8 1 

Pennsylvania:  amount  invested  in 
children's  institutions,  3;  child  wel- 
fare organizations,  number  of,   3; 


Pennsylvania  (continued) 

Eastern,  counties  and  population 
of,  6;  Eastern,  current  expenses  of 
children's  institutions  in,  7;  gen- 
erosity of  provision  for  needy 
children,  5;  investment  for  chil- 
dren, magnitude  of,  3;  ratio  of 
children  in  institutions  to  popula- 
tion, 6;  size  of  children's  institu- 
tions, 5;  state  supervision,  239- 
261;  statistics  of  children's  insti- 
tutions compared  with  three  states, 
13-16;  Western,  counties  and  popu- 
lation of,  6;  Western,  current  ex- 
penses of  children's  institutions  in,  7 

Pennsylvania  Associates:  co-opera- 
tion of  in  the  study,  35 

Pennsylvania     Epileptic     Hospital 

AND    Colony    Farm:    description 

and  statistics  of,  99 
Pennsylvania    Railroad    Employes: 

home   for  daughters  of,   killed   in 

service,  172 

Pennsylvania    Society    to    Protect 
Children      from     Cruelty,    19; 
I  children  placed  out  by,   146;  Chil- 

dren's Bureau,  agent  of,  124,  132; 
expenses,  146;  number  of  children 
in  care  and  under  supervision,  146; 
paid  workers  employed,  145,  146; 
plant  and  endowment,  146;  scope 
of  work,  143,  146;  valuation  and 
financial  statement,  146;  working 
alliance  of,  with  Children's  .^id 
Society  of  Pennsylvania,  146 

Pennsylvania  State  Board  of 
Charities.  See  State  Board  of 
Chariti.'s 

Pennsylvania  State  Conference 
of  Charities.  See  State  Confer- 
ence of  Charities 

Pennsylvania  Training  School  for 
Feeble-Minded  Children,  E1- 
wyn:  description  and  statistics, 
97-98,  101-104 

Pennsylvania  Training  School, 
Morganza:  a  state  institution  for 
wayward  boys  and  girls,  80-81; 
description  and  statistics,  80-81, 
91-94 

Pensions,  Mothers'.  See  Mothers' 
Assistance  Law 


343 


Philadelphia:  county  courts  commit 
needy  children  of,  75;  department 
of  public  health  and  charities, 
needy  children  committed  to,  75; 
juvenile  court  work  in,  68,  im- 
provement of  conditions  in,  67-68 

Philadelphia  County  Almshouses: 
children  kept  in,  55 

Philadelphia  County  Detention 
Home:  description  and  statistics, 
67;  excellent  work,  66-67 

Philadelphia  Protectory  for  Boys, 
Protectory  Station:  description 
and  statistics  of,  88-89,  9'~94 

Physical  and  Psychological  Exam- 
inations: desirability  of,  for  ad- 
mission, 240 

Physical  Conditions,  243-244.  See 
also  Health 

Pittsburgh  City  Home:  children 
cared  for  in,  57 

Pittsburgh    Home    for    Babies,  172 

Placed  Out:  number  of  children,  by 
agencies,  247,  by  institutions,  247 

Placing-Out:  a  last  resort  in  some 
institutions,  247,  248;  advantages 
of,  to  child,  128;  agencies,  co-opera- 
tion, consolidation  and  standardi- 
zation of,  248;  agency  a  necessity, 
248;  before  ten  years  of  age  recom- 
mended, 249;  by  agencies  and  in- 
stitutions (general  summary),  232, 
Bucks  County  Children's  Aid 
Society,  132,  Bureau  for  Jewish 
Children,  152,  Chester  County 
Children's  Aid  Society,  132,  child- 
caring  agencies,  127,  128,  158, 
Child  Welfare  Association  of  Alle- 
gheny County,  154,  Children's  Aid 
Society  of  Pennsylvania,  75,  123, 
124,  133,  Children's  Aid  Society  of 
Western  Pennsylvania,  125,  126, 
Children's  Bureau  of  Philadelphia, 
152,  Children's  Home  Society  of 
Pennsylvania,  126,  county  chil- 
dren's aid  societies  of  Eastern 
Pennsylvania,  134,  county  chil- 
dren's aid  societies  of  Western 
Pennsylvania,  141,  Dauphin 
County  Children's  Aid  Society, 
132,  Delaware  County  Children's 
Aid    Society,     132,    general    child- 


Placing-Out  (continued) 

caring  agencies,  127,  Home  Mis- 
sionary Society  of  Philadelphia, 
124,  125,  humane  societies  for 
children,  147,  institutions  for  com- 
bined care  of  adults  and  children, 
215,  Juniata  Valley  Children's  Aid 
Society,  126,  127,  Juvenile  Aid 
Society,  153,  Montgomery  County 
Children's  Aid  Society,  133,  Penn- 
sylvania Society  to  Protect  Chil- 
dren from  Cruelty,  146,  private 
institutions  for  dependents  (general 
summary),  223,  special  child-caring 
agencies,  155,  Western  Pennsylva- 
nia Humane  Society,  146,  Women's 
Directory,  153;  Charles  R.  Hen- 
derson on,  122;  conclusions  of 
White  House  Conference  on, 
quoted,  122;  co-operation  between 
agencies  and  institutions,  248;  de- 
fects in  institutional,  247;  definition 
of  term,  166,  167;  delinquents  a 
special  problem,  249;  discharged 
wards,  247;  favored  by  county 
children's  aid  societies  of  Eastern 
Pennsylvania,  133;  feeble-minded, 
245;  from  county  homes,  71,  72, 
73,  74;  investigation  before,  248, 
249;  normal  children  urged,  249; 
selection  in,  29,  30;  standardiza- 
tion of,  needed,  247;  state  super- 
vision of,  30;  supervision  after,  248; 
two  branches  of  agency,  248,  249; 
use  of  trained  agents  in,  248.  See 
also  Child-placing  Societies 

Placing-Out  Work,  247,  248,  249 

Plants.     See  Property  Valuations 

PooRHOUSES.     See  Almshouses 

Population:  of  children's  institutions, 
comparison  for  four  states,  24 

Presbyterian  Orphanages,  178,  179 

Principles  and  Standards  in 
Granting  State  Aid:  by  William 
Bradford  Buck,  245 

Private  Funds:  definition  of  term  as 
used  in  the  study,  42-43 

Private  Institutions:  classification, 
44;  number  and  grouping  of,  46 

Private  Institutions  for  Depend- 
ents, 163-236;  capacity  of,  de- 
fined,   166;  children   in  care,  222; 


344 


INDEX 


Private  Institutions  for  Depend- 
ents (continued) 

children  placed  out  by,  223;  cottage 
and  congregate  type  of,  defined, 
165,  166;  expenses,  222,  223;  items 
covered  by  stories  of,  included  in 
study.  167;  number  of,  165;  num- 
ber of,  combining  care  of  adults 
and  children,  168;  per  cent  of  ca- 
pacity used,  222;  plants  and  en- 
dowments, 222;  property  values, 
166;  public  funds  received,  223; 
statistics,  227-229;  summary,  222- 
229;  type  of,  165,  166.  See  also 
Institutions 

Probation:  revised  statute  affecting, 
283,  284;  state,  commission  sug- 
gested, 247;  work  of  in  Philadel- 
phia juvenile  court,  68 

Probation  Officers:  provision  affect- 
ing, violated,  246 

Progress:  in  nonsectarian  orphanages 
and  homes  of  congregate  type,  186; 
transition  and,  293-298 

Progressive  Spirit:  in  leading  insti- 
tutions and  agencies,  255 

Property:  of  special  child-caring  agen- 
cies, 155 

Property  Valuations  (including 
plants  and  endowments):  agencies 
and  institutions,  230,  231;  Alle- 
gheny Widows'  Home  Association, 
154;  Baptist  Orphanage,  179; 
Catholic  orphanages  and  homes, 
congregate  type,  198;  child-caring 
agencies,  157;  Children's  Aid  So- 
ciety of  Pennsylvania,  123;  Chil- 
dren's Aid  Society  of  Western 
Pennsylvania,  125;  Children's 
Home  Society  of  Pennsylvania, 
126;  Children's  Village,  171,  172; 
county  children's  aid  societies  of 
Eastern  Pennsylvania,  133,  134; 
county  children's  aid  societies  of 
Wester. 1  Pennsylvania,  141;  gen- 
eral church  orphanages  and  homes, 
congregat '  type,  206;  general 
church  orphanages  and  homes, 
cottage  type,  179;  Girard  College, 
187;  Girls'  Industrial  School,  170; 
Hershey  Industrial  School,  170; 
Holy  Family  Polish  Orphan  Asy- 
lum, 199;  Home  for  the  Friendless, 
187;  Home  Missionary  Society  of 


Property  Valuations  {continued) 

Philadelphia,  124;  humane  societies 
for  children,  146,  147;  institutions 
for  combined  care  of  adults  and 
children,  215;  J.  Edgar  Thomson 
School  for  Girls,  172;  Joint  Shelter 
for  Children,  188;  Juniata  Valley 
Children's  Aid  Society,  126;  Metho- 
dist Episcopal  Orphanage,  179; 
nonsectarian  orphanages  and 
homes,  173,  congregate  type,  188; 
Pennsylvania  Society  to  Protect 
Children  from  Cruelty,  146;  Pitts- 
burgh Home  for  Babies,  172;  Pres- 
byterian Orphanage,  179;  private 
institutions  for  dependents,  166, 
222;  Pruner  Home  for  Friendless 
Children,  170;  Roselia  Foundling 
Asylum,  199;  St.  Paul's  Orphan 
Asylum,  199;  St.  Paul's  Orphan 
Home,  180;  St.  Vincent's  Home 
and  Maternity,  199;  St.  Vincent's 
Orphan  Asylum,  199;  special  child- 
caring  agencies,  155;  statistics  of, 
of  institutions,  223;  Thaddeus 
Stevens  Industrial  School,  171; 
variations  in  data  concerning,  51 

Protestant  Episcopal  Institutions, 
178,  206,  214 

Pruner  Home  for  Friendless 
Children,  170 

Psychological  Examination:  desira- 
bility of,  for  admission,  240 

Public  Appropriations  to  Private 
Institutions:  by  Joseph  .\.  Beck, 
245.  See  also  Public  Funds;  State 
Aid;  Subsidy  System 

Public  Charities  Association,  252- 
254;  enactment  of  legislation  se- 
cured by,  234;  first  annunl  report 
of,  quoted,  253;  investigation  of 
children  in  Allegheny  County 
almshouse  by,  58;  origin  and  pur- 
poses of,  253,  254 

Public  Funds:  appropriation  of,  to 
Catholic  and  non-Catholic  insti- 
tutions in  four  states  compared, 
23-26;  constitutional  pro\ision  re- 
lating to  appropriation  of,  291, 
violated,  243;  definition  of  term 
as  used  in  the  study,  42-43;  dis- 
tribution of,  by  state,  recommenda- 
tions concerning,  29-30,  in  lump 
sum    less    satisfactory    than     per 


345 


INDEX 


Public  Funds  (continued) 

capita  basis,  29,  no  governing 
principle  for,  26-27,  on  scientific 
basis  desirable,  245;  not  a  benefit 
to  children's  aid  societies  of  West- 
ern Pennsylvania,  139,  140;  num- 
ber of  private  organizations  receiv- 
ing, in  Pennsylvania,  21,  23,  com- 
parison for  four  states,  22,  23-26; 
Public  Charities  report  on  distribu- 
tion of,  quoted,  253;  received  by 
agencies  and  institutions,  23 1 ,  Cath- 
olic orphanages  and  homes,  con- 
gregate type,  198,  children's  insti- 
tutions in  Eastern  Pennsylvania, 
7-8,  in  Western  Pennsylvania,  7-8, 
general  church  orphanages  and 
homes,  congregate  type,  206,  insti- 
tutions for  combined  care  of  adults 
and  children,  215,  nonsectarian 
orphanages  and  homes,  congregate 
type,  188,  private  institutions  for 
dependents,  223;  recommendation 
that  appropriation  of,  be  made 
dependent  on  maintenance  of 
standards  in  institution,  30;  small 
expenditure  of,  not  always  econ- 
omy, 20;  statistics  showing  per  cent 
of  expenses  of  institutions  paid 
from  appropriations  of,  224;  to 
Pennsylvania  children's  institu- 
tions, statistics  concerning,  26-27; 
to  private  institutions,  21-32,  245, 
246 
Public  Institutions:  classification,  44 

Public   Provision   for  the    Feeble- 
minded: by  Walter  S.  Cornell,  267 

Public    School.     See  Education 
Public  School  Training:  advantages 
of,  244 


Ralph,  Georgia  C,  240 

Ratio:  of  children  in  institutions  to 
population  of  New  York,  6,  of 
Pennsylvania,  6 

Rauh,    Mrs.    Enoch,   254 

Rauschenbusch,  Dr.  Walter:  quoted, 
293 

Recommendations:  concerning  a  state 
program  of  child-care  and  super- 
vision, 32-33;  concerning  county 
care    of    children,     75;    enlarging 


Recommendations  (continued) 

powers  of  state  board  of  charities, 
75;  establishment  of  homes  for 
defectives,  99-100;  establishment 
of  parental  schools,  90;  general, 
239-255;  homes  and  training 
schools  for  delinquents,  90;  im- 
provement of  conditions  in  alms- 
houses, 59;  state  supervision  of 
children,  29-30 

Records,  239,  240;  lack  of  adequate,  20, 
239,  241,  242;  legal  requirements 
concerning,  260;  need  of  adequate 
and  uniform,  240;  of  detention 
homes  inadequate,  66;  private 
charities  not  compelled  to  keep 
adequate,  260;  suggestion  for  pro- 
curing uniform,  240 

Reformed   Church    Homes,    178,  206 

Relational    Condition:    of  children, 

232,  233 
Relatives:   duty  of  urging  aid  to,  241 

Religion:  the  power  behind  social 
service,  295,  296 

Religion  and  Social  Service:  Rabbi 
Stephen  S.  Wise  on,  238 

Religious  Denominations:  of  general 
church  orphanages  and  homes, 
congregate  type,  206;  of  institu- 
tions for  combined  care  of  adults 
and  children,  214 

Report  of  the  Commission  on 
Segregation,  Care  and  Treat- 
ment OF  Feeble-minded  and 
Epileptic  Persons  in  Pennsyl- 
vania:  quoted,  268,  271-274 

Responsibility  for  Maintenance: 
statute  defining,  of  dependent  chil- 
dren, 284 

Restrictions:  donor's,  limiting  work 
of  institutions,  250-252;  no,  on 
founding,  organizing  or  manage- 
ment of  private  charities,  260 

Results:  combined,  of  general  child- 
caring  agencies,  127,  128 

Rhodes,    Mrs.   Charles   J.,   254 

Richardson,  H.  P.,  246;  quoted  con- 
cerning Philadelphia  juvenile  court, 
67,  68 


346 


INDEX 


Robinson,    George     B.:    at  National 
Conference  of  Charities  and  Cor- 
rection, 200 
Roman    Catholic.     See  Catholic 
RosELiA   Foundling   Asylum,    199 

Round  Table  Conference  of 
Colored  Institutions:  organized 
under  Children's  Bureau  of  Phila- 
delphia, 132 

Rural  Districts:  need  benefit  of  chil- 
dren's institutions,  32 

Russell  Sage  Foundation:  investi- 
gations of  Pennsylvania  children's 
organizations  by,  35-  See  also 
Department  of  Child  Helping  of  the 
Russell  Sage  Foundation 

St.  John's  Orphan  Asylum,    198 

St.  Joseph's  Orphan  .Asylum,  198 

St.  Joseph's  Protectory  for  Girls, 
Norristown,  Pa.:  description  and 
statistics  of,  85,  91-94 

St.  Mary  Magdalen  Society  for 
Colored  Girls,  Germantown, 
Pa.:  description  and  statistics  of, 
87-88 

St.  Paul's  Orphans'  Home,  180,  199 

St.  Vincent's  Home,  199 

St.  Vincent's  Home  and  Maternity, 
•99 

St.   Vincent's  Orphan   .Asylum,    199 

Salaries:  higher,  for  workers  recom- 
mended,   243;   of   employes,    226. 

See  also  Expenses 

Salvation    .Army    Homes,   206 

Samples  of  .Agency   Forms,  301 

Schedule,  The:  facsimiles  of,  37-40; 
used  in  the  investigation,  36 

School.     See  Public  School 

Scope  of  the  Study,  35-36 

Scope  of  Work  of  Agencies  and 
Institutions:  Allegheny  Widows' 
Home  Association,  154;  associated 
charities,  147;  Bucks  County  Chil- 
dren's Aid  Society,  132;  Bureau 
for    Jewish    Children,     151,     152; 


Scope  of  Work  of  Agencies  and 
Institutions  (continued) 
Catholic  orphanages  and  homes, 
congregate  type,  198;  Chester 
County  Children's  Aid  Society, 
132;  child-caring  agencies,  151, 
157,  158;  Child  Welfare  Associa- 
tion of  Allegheny  County,  154; 
Children's  Aid  Society  of  Penn- 
sylvania, 123,  124;  Children's  Aid 
Society  of  Western  Pennsylvania, 
125,  126;  Children's  Bureau  of 
Philadelphia,  1 52;  Children's  Home 
Society  of  Pennsylvania,  126;  Chil- 
dren's Village,  171,  172;  county 
children's  aid  societies  of  Eastern 
Pennsylvania,  133,  134;  county 
children's  aid  societies  of  Western 
Pennsylvania,  138;  Dauphin 
County  Children's  Aid  Society, 
132;  Delaware  County  Children's 
Aid  Society,  132;  Franklin  County 
Children's  Aid  Society,  133;  general 
church  orphanages  and  homes,  con- 
gregate type,  206,  207,  cottage  type, 
180,  181;  Girls'  Industrial  School, 
170;  Hershey  Industrial  School, 
170;  Home  Missionary  Society  of 
Philadelphia,  124,  125;  humane 
societies  for  children,  146,  147;  in- 
stitutions for  combined  care  of 
adults  and  children,  214;  J.  Edgar 
Thomson  School  for  Girls,  172; 
Juniata  Valley  Children's  Aid 
Society,  126,  127;  Juvenile  Aid 
Society,  153;  Lycoming  Children's 
Aid  Society,  133;  Montgomery 
County  Children's  Aid  Society, 
133;  Pennsylvania  Society  to  Pro- 
tect Children  from  Cruelty,  145, 
146;  Pittsburgh  Home  for  Babies, 
172;  Pruner  Home  for  Friendless 
Children,  170;  Society  for  the  Care 
of  Jewish  Orphans,  154,  i55;'rhad- 
deus  Stevens  Industrial  School,  171 ; 
Western  Pennsylvania  Humane 
Society,  i46;Women's  Directory,  1 53 

Scranton  Associated  Charities:  de- 
tention   home   in    building   of,    66 

Segregation  and  Care:  commission 
appointed  on,  of  feeble-minded  and 
epileptics,  270;  of  feeble-minded, 
244,  245,  266-275;  of  normal  chil- 
dren and  defectives  desirable,  199; 
situation  in  regard  to,  feeble- 
minded, 270-274 


347 


INDEX 


Selection:  in  placing  of  children, 
2^30 

Sewickley  Fresh  Air  Home,  Se- 
wickley:  for  crippled  white  chil- 
dren, description  and  statistics  of, 
108-109,  >'o~i '3 

Seybert  Institution  for  Poor  Boys 
AND  Girls  :  Children's  Bureau  agent 
of,  124,  152;  expense  of  the  study 
shared  by,  35.  See  also  Children's 
tillage  at  Meadowhrook 

Shelter  for  Colored  Orphans, 
207;  affiliated  with  Children's 
Bureau  of  Philadelphia,  152 

"Sixty-day  Law,"  56,  59;  affecting 
the  placing  and  retention  of  chil- 
dren in  almshouses,  290;  enforced 
by  Allegheny  City  Home,  57 

Size:  of  children's  institutions  in  Penn- 
sylvania and  New  York,  5 

Sleighton  Farm.  See  Glen  Mills 
Schools,  Girls'  Department 

Social  Revolution:  importance  of 
present,  293,  294 

Social  Service:  basis  of,  equality  of 
rights,  294,  295;  co-operation  in, 
295;  definition  of  term,  294;  religion 
the  power  behind,  295,  296;  state 
programs  requisite  for  coordina- 
tion in,  295 

Social  Service  and  Religion:  Rabbi 
Stephen  S.  Wise  on,  238 

Social  Worker:  definition  of  term, 
294 

Society  for  Organizing  Charity: 
affiliated  with  Children's  Bureau 
of  Philadelphia,  152 

Society  for  the  Care  of  Jewish 
Orphans:  expenses  of,  155;  num- 
ber of  children  in  care  and  under 
supervision,  155;  scope  of  work, 
154,  155;  volunteer  workers  of,  155 

Soldiers'  Orphans'  Industrial 
School,  Scotland,  Pa.:  description 
and  statistics,  45,  71-72,  76-78 

SOLENBERGER,       EdWIN       D.,      247;      On 

special  work  of  county  children's 
aid  societies  of  Eastern  Pennsyl- 
vania, 132 


Some  Revised  and  Recent  Statutes, 
283-292 

Sommer,  Dr.  H.  J.,  253 

Spaulding,  Bishop:  at  National  Con- 
ference of  Charities  and  Correc- 
tion, 200 

Special  Child-caring  Agencies.  See 
Child-Caring  /Agencies,  Special 

Standardization:  systematic  study 
tends  toward,  of  institutions,  242 

Standardization  of  Placing-Out 
Work:  by  Edwin  D.  Solenberger, 
247 

Standardization  of  the  Institu- 
tional Care:  by  Frank  D.  With- 
erbee,  242 

Standards:    of  institutional  care,  30 

State  Aid.  See  Public  Funds;  Subsidy 
System 

State  and  County  Homes:  average 
expense  of,  75;  for  dependents, 
71-79;  number  of,  71;  statistical 
tables  concerning,  76-79 

State  Appropriations.  See  Public 
Funds;  Subsidy  System 

State  Board  of  Public  Charities: 
act  providing  for  supervision  by, 
288,  289;  appropriations  to  insti- 
tutions supervised  by,  27-29;  au- 
thority of,  limited,  260,  261;  laws 
relating  to  the,  291;  need  for  en- 
largement of  powers  of,  75;  non- 
partisan selection  for  service  on, 
recommended,  262;  variations  in 
data  from  those  of  study  explained, 
50-51 

State  Conference  of  Charities: 
committee  of,  on  child  welfare 
program  suggested,  32;  co-opera- 
tion of,  in  the  study,  35 

State  Department  of  All  Charities: 
plan  for,  outlined,  264,  265 

State  Department  of  Children's 
Charities:  plan  for,  outlined,  263, 
264 

State  Hospital  for  the  Insane: 
number  of  epileptics  in,  272 

State  Probation  Commission:  crea- 
tion of,  suggested,  247 


348 


State  Program  of  Child  Welfare, 
31-34;  outlined  by  W.  A.  Gates, 
261,  262;  recommendations  for, 
concerning  care  and  supervision, 
32-33;  requisite  for  coordination  in 
social  service,  295;  suggestions  for, 
relative  to  feeble-minded,  274,  275 

State  Supervision:  act  providing  for, 
288,  289;  of  agencies  an  item  for 
children's  code,  32-33;  of  children 
placed  out,  30;  of  public  funds  to 
institutions,  27-31;  recommenda- 
tions concerning,  29,  30 

State  Supervision  of  Children's 
Institutions:  256-265;  action  in 
matter  of,  urged,  265;  an  item  for 
children's  code,  32-33;  bill  for, 
presented  in  1913,  261;  fundamen- 
tal principles  of,  257,  258;  in  Cali- 
fornia, 261,  Illinois,  256,  Iowa,  262, 
Pennsylvania,  259-261,  Wiscon- 
sin, 262;  limited  by  lack  of  ade- 
quate appropriations,  261;  nonsec- 
tarian  and  nonpartisan,  needed, 
256;  object  of,  256,  257;  regular, 
not  provided  for  unsubsidized  pri- 
vate charities,  260;  Rev.  Father  D. 
J.  McMahon  on,  258;  Rev.  Father 
Francis  H.  Gavisk  on,  258,  259; 
Rev.  Father  William  J.  White  on, 
238;  right  and  duty  of,  257;  systems 
of,  imperfect,  257;  ways  in  which 
satisfactory,  may  be  accomplished, 
265 

Statistical  Tables:  arrangement  and 
relations  of,  48-52;  capacity  and 
children  in  care  for  175  institu- 
tions for  dependents,  225;  concern- 
ing almshouses  and  poorhouses,  by 
counties,  60-65,  Catholic  orphan- 
ages and  homes,  congregate  type, 
202-205,  county  children's  aid 
societies  of  Eastern  Pennsylvania, 
'35~'37.  county  children's  aid 
societies  of  Western  Pennsylvania, 
142-144,  detention  homes,  by 
counties,  69-70,  general  child- 
caring  agencies,  129-13 1,  general 
church  orphanages  and  homes, 
congregate  type,  209-213,  general 
church  orphanages  and  homes, 
cottage  type,  182-185,  homes  and 
training  schools  for  defectives,  loi- 
104,  homes  and  training  schools 
for    delinquents,    91-94,     humane 


Statistical  Tables  (continued) 

societies  for  children,  148-150,  in- 
stitutions for  combined  care  of 
adults  and  children,  21S-221,  non- 
sectarian  orphanages  and  homes, 
congregate  type,  190-197,  non- 
sectarian  orphanages  and  homes, 
cottage  type,  174-177,  Philadel- 
phia County  Detention  Home,  67, 
special  child-caring  agencies,  156; 
contents  of  general  and  financial 
section,  48-49;  explanation  of 
arrangement  and  contents,  48-52; 
feeble-minded  persons  in  Pennsyl- 
vania institutions,  271;  for  child- 
caring  agencies  under  private  man- 
agement, 1 59-161 ;  for  miscellaneous 
institutions,  number  and  group- 
ing of  institutions  for  summary, 
1 14-115;  for  private  institutions 
for  dependents,  227-229;  general 
summary  for  all  agencies  and  insti- 
tutions, 234-236,  in  summary 
chapters,  method  of  arrangement, 
114;  maintenance  e.xpense,  amount 
and  per  cent  derived  from  public 
funds  for  175  institutions  for  de- 
pendents, 224;  per  capitas  for 
current  expense  and  permanent 
investment  for  175  institutions  for 
dependents,  225;  property  values 
for  175  institutions  for  dependents, 
223;  salaries  of  employes  and  chil- 
dren per  employe  for  175  institu- 
tions for  dependents,  226;  section 
on  beneficiaries  and  methods,  com- 
parative current  statistics,  and 
statistics  of  children,  49;  showing 
division  of  institutions  for  depend- 
ents by  type  and  management,  168; 
summary  for  Part  Two,  Miscel- 
laneous Institutions  for  Children, 
117-119;  variations  from  state 
board  of  charities  data  explained, 
50-51;  work  under  Mothers'  As- 
sistance Act  in  .\llegheny  County 
and  Philadelphia  County  during 
1914,  282 

Statistics,  Comparative:  for  chil- 
dren's institutions  in  four  states, 
13-16;  for  groups  of  children's 
institutions  in  Pennsylvania,  7-13 

Statutes:  some  revised  and  recent, 
283-292.  See  also  Laws;  Legisla- 
tion 


349 


Study.  See  Scope  of  the  Study;  Sys- 
tematic Study 

Subsidy  System.     See  Public  Funds 

Suggestions:  for  improvement  of  in- 
stitutions for  combined  care  of 
adults  and  children,  215,  216,  217; 
general,  239-255 

Summaries,  Statistical:  contents  of, 
50 

Summary:  for  child-caring  agencies, 
1 57-161;  for  county  children's  aid 
societies  of  Eastern  Pennsylvania, 
133,  134;  for  county  children's  aid 
societies  of  Western  Pennsylvania, 
141;  for  humane  societies  for  chil- 
dren, 146,  147;  for  miscellaneous 
institutions  for  children,  114-119; 
for  private  institutions  for  depend- 
ents, 222-229;  for  special  child- 
caring  agencies,  155;  of  relational 
condition  of  children,  232,  233;  of 
statistics  for  agencies  and  institu- 
tions, 234-236,  child-caring  agen- 
cies, 159-161,  private  institutions, 
227-229 
Supervision:  by  visits  of  trained  in- 
spectors desirable,  186,  241;  of 
cases  by  general  church  orphanages 
and  homes,  congregate  type,  207; 
of  placed-out  children,  248,  by 
child-caring  agencies,  158,  by 
county  homes,  72,  73,  74.  See  also 
State  Supervision 
Systematic  Study:  lack  of  adequate 
records  hinders,  241,  242;  tends 
toward  standardization  of  institu- 
tions, 242;  value  of,  241,  242 

Tables.  See  Statistical  Tables 
Tener,  Governor  John  K.:  Commis- 
sion on  Segregation,  Care  and 
Treatment  of  Feeble-minded  and 
Epileptic  Persons,  appointed  by, 
270 
Terms:    definitions  of,  42-43 

Territory:  of  Children's  Aid  Society 
of  Pennsylvania,  123,  124,  Chil- 
dren's Aid  Society  of  Western  Penn- 
sylvania, 125,  126,  Children's  Hu- 
mane Society  of  Pennsylvania,  126, 
Juniata  Valley  Children's  Aid 
Society,  126,  127 


Thaddeus        Stevens        Industrial 

School,  170 
Thaw,  Jr.,  Mrs.  William,  254 

Thomson  School  for  Girls:  donor's 
restriction  limiting  work  of,  250 

Thorn  Hill  School  (Allegheny 
County  Industrial  School  for  Boys), 
Warrendale,  Pa.,  18;  agricultural 
work  at,  18;  description  and  sta- 
tistics, 80,  81-82,  91-94 

Tilly,  David  H.:  at  National  Confer- 
ence of  Charities  and  Correction, 
200 

Trained  Agents  or  Workers.  See 
l-Vorkers,  Trained 

Training  Schools:  and  homes  for 
delinquents,  80-94 

Transition  and  Progress,  293-298 

Tredgold,  Dr.  A.  P.:  quoted,  267,  268 

Tucker,  Frank:  quoted,  292 

Type:  congregate,  undesirable,  243; 
cottage  and  congregate,  defined, 
165,  166;  of  institutions  for  com- 
bined care  of  adults  and  children, 
214;  of  private  institutions  for  de- 
pendents, 165,  166;  statistics  show- 
ing division  of  institutions  by,  168 

Type  and  Location:    changes  in,  243 


United    Brethren    Orphanage,    179 

United  Charities:  union  of,  with 
Luzerne  County  Humane  Society, 
145 

United  Hebrew  Charities:  Bureau 
for  Jewish  Children,  branch  of,  151 

United    Presbyterian    Home,    206 

Unmarried  Mothers  and  Babies: 
Women's  Directory  organized  to 
aid,  153.  See  z\so  Institutions  for 
Combined  Care  of  Adults  and  Chil- 
dren 

Untrained  Workers.  See  IVorkers, 
Untrained 


Valuation.     See  Property  Valuations 
Vaux,  Jr.,  George,  254 


350 


INDEX 


Village  for  Feeble-Minded  Women: 
act  providing  for,  loo.  286,  287 

Visitation:  act  providing  for  board  of, 
287,  288 

Visitors:  force  required  for  state  super- 
vision, 30.  See  also  Supervision, 
Workers 

Volunteer  Workers.  See  H'orkcrs, 
Volunteer 


Wallace,  Rov  Smith:  on  public  ap- 
propriations to  private  charities, 
246 

Washington  County  Children's  Aid 
Society:  paid  worker  employed  by, 
138 

Washington  County  Children's 
Home:  description  and  statistics, 
74.  76-79 

Watch-care:  of  state  charges,  inade- 
quate provision  for,  31.  See  Su- 
pervision 

Wayward  Children.     See  Delinquents 

Wayward  Girl,  The:  by  Martha  P. 
Falconer,  244 

Western  Pennsylvania  Children's 
Aid  Societies.  See  County  Chil- 
dren's Aid  Societies  of  IVestern 
Pennsylvania 

Western  Pennsylvania  Humane 
Society:  children  placed-out  by, 
146;  number  of  children  in  care  and 
under  supervision,  146;  scope  of 
work,  146 

Western  Pennsylvania  Institu- 
tion FOR  Feeble-jMinded:  de- 
scription and  statistics,  95-96, 
101-104;  number  of  epileptics  in, 
272 

Wharton,  Bromley,  253 

White,  Rev.  Father  William  J.:  on 
state  supervision  of  private  insti- 
tutions, 238 

Why  Pennsylvania  Needs  a 
Widows'  Pension  Law:  by 
Rabbi  Rudolph  1.  Coffee,  286 

Widener  Memorial  School:  amount 
of  investment  in,  3,  12;  description 
and   statistics,    107-108,    110-113; 


Widener  Memorial  ScHOOL(con//«Mf£?) 
statistics  of,  reasons  for  differentiat- 
ing, 5.  7 

Widows  and  Children:  housing  pro- 
vided for,  1 54 

Wilkes-Barre  United  Charities: 
provides  rooms  for  detention  home, 
66 

William  T.  Carter  Junior  Republic, 
Redington,  Pa.:  for  white  Protest- 
ant boys,  description  and  statistics 
of,  89-90,  91-94 

Wisconsin:  state  supervision  in,  262 

Wise,  Rabbi  Stephen  S.:  on  social 
service  and  religion,  238 

Witherbee,  Frank  D.,  242 

Women  of  Child-bearing  Age: 
custodial  care  of  feeble-minded, 
urgently  needed,  270,  274,  273 

Women's  Directory:  children  placed 
out  by,  133;  expenses,  133;  number 
of  children  in  care  and  under  super- 
vision, 133;  organized  to  aid  un- 
married mothers  and  babies,  133; 
scope  of  work,  1 33 

WooDviLLE,  Pa.,  County  Home:  bad 
conditions  for  children  in,  57 

Woodward,  Dr.  George,  254 

Woodward,  Mrs.  George,  254 

Workers:  advantages  of  paid  and 
volunteer,  138-140;  higher  salaries 
for,  advocated,  243 ;  in  agencies  and 
institutions,  231,  Catholic  orphan- 
ages and  homes,  congregate  type, 
198,  general  church  orphanages 
and  homes,  congregate  type,  206, 
institutions  for  combined  care  of 
adults  and  children,  215,  nonsecta- 
rian  orphanages  and  homes,  con- 
gregate type,  188,  cottage  type, 
173;  institutional,  reasons  for  un- 
rest among,  243;  institutional, 
under  severe  strain,  242,  243.  See 
also  Employes 

Workers,  Paid:  amalgamation  of  ad- 
jacent counties  in  Western  Penn- 
sylvania with,  recommended,  140; 
employed  by  Allegheny  County 
Children's  Aid  Society,  138,  child- 
caring  agencies,  i  37,  Child  Welfare 
Association  of  Allegheny  County, 


351 


INDEX 


Workers,  Paid  {continued) 

154,  county  children's  aid  societies, 
20,  Mercer  County  Children's  Aid 
Society,  138,  Pennsylvania  Society 
to  Protect  Children  from  Cruelty, 
145,  146,  special  child-caring  agen- 
cies, 155,  Washington  County 
Children's  Aid  Society,  138 

Workers,  Trained:  investigations  for 
admission  by,  desirable,  240,  241; 
necessity  for,  in  good  child-caring 
work,  21;  policy  of  Allegheny 
County  Children's  Aid  Society 
concerning,  155;  recommended  for 
children's  aid  societies  of  Eastern 
Pennsylvania,  134;  supervision  of 
dismissed  children  by,  desirable, 
241 ;  use  of,  in  placing-out  children, 
248 


Workers,  Untrained:  institutional, 
false  economy,  242 

Workers,  Volunteer:  county  chil- 
dren's aid  societies  employ,  20;  in 
Allegheny  Widows'  Home  Asso- 
ciation, 154,  Children's  Aid  Society 
of  Western  Pennsylvania,  125, 
county  children's  aid  societies  of 
Eastern  Pennsylvania,  20,  134, 
county  children's  aid  societies  of 
Western  Pennsylvania,  20,  138, 
Society  for  the  Care  of  Jewish 
Orphans,  135;  policy  of  Allegheny 
County  Children's  Aid  Society 
concerning,  135 


Young,  Robert  K.,  253 


352 


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